• 


REPORT  /.  :    ::•.-.: 

V /<,:«_::'  V:'-l:':  :/-• 

OF 

A  STUDY  OF  THE  CALIFORNIA 
HIGHWAY  SYSTEM 

BY 

THE  UNITED  STATES  BUREAU  OP 
PUBLIC  ROADS 

TO 

S 

THE  CALIFORNIA  HIGHWAY  COMMISSION 
AND  HIGHWAY  ENGINEER 

NEWELL  D.  DARLINGTON,  Chairman 

CHARLES  WHITMORE 

GEORGE  C.  MANSFIELD 

AUSTIN  B.  FLETCHER,  Highway  Engineer 


[  ISSUED  1920  :  REVISED  1921  ] 


WASHINGTON 

GOVERNMENT  PRINTING  OFFICE 
1922 


CALIFORNIA 

STATE:  HIGHWAY  SYSTEMS  FOR  1909-15-19 
RELATED  TOPOGRAPHY 


CAUFQRHIA  HIGHWAY  STUDY 

M)v{M*U.;m 

-i/««j~ 


•,i>^-  - 


\ 


RELIEF  MAP  OF  CALIFORNIA,  SHOWING  STATE  HIGHWAY  SYSTEM. 
(From  the  model  by  Prof.  N.  p.  Drake  of  Leland  Stanford  University.) 


CONTENTS 


Letter  of  transmlttul  by  the  Secretary  of  Agriculture  _____ 

Foreword  by  the  Chief  of  Bureau  of  Public  Roads  ________ 

Letter  of  transinittiil  1"  Chief  of  Bureau  of  Public  Roads. 


Historical 


/Systems  designed  ---------------------------------- 

Kelation  of  total  system  to  agriculture  and  popu- 
lation ________________________  ______________ 

i  irganization  ______________________________________ 

<  'onvict  labor  ____  1  ________________________________ 

Specifications  ------------------------------------- 

Work  done  ---------------------------------------- 

Federal  aid  ___________________________________ 

Bridges  and  structures  _______________________ 

Maintenance  __________________________________ 

Present  condition  of  constructed  roads  _____________ 

Classification  _________________________________ 

Photographs  ________ 

Subgrade  soil  _________________________________ 

Soil  classification  _____________________________ 

Special  studies  of  defective  pavement  ___________ 

Soil  moisture  determinations  ___________________ 

.Mi  list  u  iv  equivalent  determinations  _____________ 

Shrinkage  tests  _______________________________ 

Subsoil  moisture  cross  sections  _________________ 

Rearing  ixiwer  ________________________________ 

Concrete  sample  cores  _________________________ 

Results  of  tests  ________________________________ 

Remarks  on  tests  of  cores  ________________  j  _____ 

(Jrade.  alignment,  and  location  _________________ 

Economics  and  other  studies  _______________________ 

General  economic  features  _____________________ 

Motor  vehicles  —  general  _______________ 


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.-,!( 
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86 
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90 


DATA — Continued.  Page. 
Economics  and  other  studies — Continued. 

Traffic  counts 91 

Truck  questionnaire 95 

Passenger  bus  lines 99 

-Motor  truck  freight  lines 102 

Field  weighing 102 

Speed  measurement 102 

General 102 

Violations  of  State  law 109 

DISCUSSION  : 

Bond  issues,  systems  designed,  and  general  policy 110 

Management 110 

Standard  pavement  design ill 

Design  of  grade,  alignment,  and  sections 119 

Specifications 119 

Further  discussion  of  policy  of  extension  of  mileage--  120 

Present  conditions 120 

<  ^instruction  and  maintenance 124 

Administrative  and  engineering  organizations 124 

Convict  labor 125 

Economics  and  other  studies rjr, 

CoNci.rsiON 127 

APPKNDICES: 

A.  Details  of  State  highway  bonds — highway  systems 

proposed 132 

B.  Tables  of  comparison  of  engineers'  estimate  and 

liual  payments  on  20  selected  jobs 137 

('.  Motor-vehicle  legislation 139 

D.  Cross  sections  showing  soil  moisture 141 

K.  Tratlic  blank 148 

K.  Motor-truck  freight  lines 149 

<;.  Traffic  diagrams 15] 

H.  Pavement  condition  diagrams 159 


LIST  OF  PLATES 


FRONTISPIECE.  "  Relief  map  of  California." 

PLATE  I.  Outline  nmp  of  Oaliforniu,  outlining  the  State 

highway   system   recommended   by   the  bureau   of 

highways,  November  25,  1896 

PLATE  II.  Diagram  of  total  bond  requirements  showing 

both  interest  and  principal  repayment  by  years 

PLATE  III.  Outline  map  of  California  showing  State  high- 
way systems  for  1909,  1915,  1919,  and  agricultural 

areas 

PLATE  IV.  Organization  chart  for  1920 

PLATE  V.  Outline  map  of  California  showing  pavement 

completed,  by  years — 1913 

PLATE  VI.  Outline  map  of  California  showing  pavement 

completed,  by  years — 1914 

PLATE  VII.  Outline  map  of  California  showing  pavement 

completed,  by  years — 1915 

PLATE  VIII.  Outline  map  of  California  showing  pavement 

completed,  by  years — 1916 

PLATE  IX.  Outline  map  of  California  showing  pavement 

completed,  by  years — (1917 

PLATE  X.  Outline  map  of  California  showing  pavement 

completed,  by  years — -1918 

PLATE  XI.  Outline  map  of  California  showing  pavement 

completed,    by   years — 1919 

PLATE  XII.  Outline  map  of  California  showing  pavement 

completed,  by  years — 1920 

PLATE  XIII.  Concrete  culverts 

PLATE  XIV.  Yolo  Causeway;  three-spaa  concrete  culvert; 

7  Tehema  A 

PLATE    XV.  Diagram    showing   present    classification    of 

pavement  laid  each  year,  from  1913  to  1920 

PLATE  XVI.  Diagram  showing  percentages  of  concrete 
pavement  classes,  In  surfaced  and  unsurfaced  pave- 
ment  

PI.ATE  XVII.  Pictures  showing  class  A  pavement 

PLATE  XVIII.  Pictures  showing  class  B  pavement 

PLATE  XIX.  Pictures  showing  class  C  pavement 

PLATE  XX.  Pictures  showing  class  D  pavement 

PLATE  XXI.  Pictures  showing  class  K  pavement 

PLATE  XXII.  Pictures  showing  class  F  pavement 

PLATE  XXIII.  Showing  profile  views  of  soil  shrinkage 

PLATE  XXIV.  Showing  profile  views  of  soil  shrinkage__ 

PLATE  XXV.  Showing  top  views  of  soil  shrinkage 

PLATE  XXVI.  Showing  top  views  of  soil  shrinkage 

PLATE  XXVII.  Curve  showing  relation  between  moisture 

content  and  bearing  power  of  soil  from  7  Colusa  C_ 

PLATE  XXVIII.  Curve  showing  relation  between  moisture 

content   and   bearing   power   of  soil   from   2    Los 

Angeles  B 

PLATE  XXIX.  Diamond   drill 

PLATE  XXX.  Typical  cores  drilled  with  diamond  drill.- 
PLATE  XXXI.  Typical   cores   drilled  with   diamond   and 

chilled-shot   drills 

PLATE  XXXII.  Types  of  grading  and  distribution  of 
coarse  aggregate 


Page. 


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12 


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16 

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42 
43 
44 
45 
46 
47 

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63 
64 
CM 
(56 
67 
68 
72 
73 
74 


1 1 
79 

80 

81 


83 


Page. 
PLATE   XXXIII.  Types   of   grading   and   distribution   of 

coarse  aggregate 84 

PLATE  XXXIV.  Diagram  showing  relation  between  age  of 

concrete  in  years  and  crushing  strength 85 

PLATE  XXXV.  Motor  vehicle  registration   in  California 

and  the  United  States  by  years 02 

PLATE  XXXVI.  Motor  vehicle  registration  in  five  leading 

States 93 

PLATE  XXXVII.  Outline  map  of  California  showing  traf- 
fic stations  and  their  locations  and  designations.  94 

PLATE  XXXVIII.  Traffic  on  State  highways 96 

PLATE  XXXIX.  Diagram  showing  estimated  agricultural 
tonnage  hauled  on  California  State  highways  dur- 
ing a  calendar  year 97 

PLATE  XL.  Diagram  showing  total  number  of  trucks  in 
four  classes  reported  by  questionnaire  and  relation 
of  per  cent  in  each  class  to  corresponding  per  cent 

from  traffic  count 98 

PLATE  XLI.  Passenger  motor  busses 101 

PLATE  XLI  I.  Diagram  showing  comparison  of  number  of 
trucks  of  various  capacities  reported  by  question- 
naire and  by  licensed  truck  freight  lines 103 

PLATE  XLIII.  Diagram  showing  hourly  variation  of  week- 
day traffic  at  101  stations  and  corresponding  aver- 
age hourly  variation  of  Sunday  traffic  at  37  sta- 
tions  . 1O4 

PLATE  XLIV.  Diagram  showing  average  hourly  variation 

of  week-day  truck  traffic  at  101  stations 105 

PLATE  XLV.  Diagram  showing  variation  of  total  traffic 

during  the  week  based  on  283  week-day  counts 100 

PLATE  XLVI.  Kern  County ;   average  number  of  trucks 

and  horse-drawn  vehicles  passing  five  stations 107 

PLATE  XLVII.  Los  Angeles  County ;  average  number  of 
trucks  and  horse-drawn  vehicles  passing  nine  sta- 
tions   108 

PLATE  XLVIII.  Typical  sections 112 

PLATE  XLIX.  Typical  road  sections 113 

PLATE    ..  Pictures  of  edge  failures 115 

PLATE    A.  Longitudinal  cracks  with  faulting 116 

PLATE    AI.  Pitting  and  checking 117 

PLATE    All.  Misplaced  mesh   reinforcing;  shoulder  wear 

f-om  insufficient  width US 

PLATE    A\'.  Oil  macadam  pavement 121 

PLATE    A'.  Supplementary  construction 122 

PLATE    ,VI.  Supplementary  construction;   maintenance.-      123 
PLATE    -iVII.  Route  9,  Los  Angeles   County,   Section  A ; 

coast  route  2,  Santa  Barbara  County,  Section  K_-       13O 
PLATE  LVIII.  Route  7,  Solano  County,  Section  A;  route 9, 

Los  Angeles  County,  Section  A 131 

PLATES  LIX  to  LXIV.  Ap]K>imMx  1>;  soil  sections 142-147 

PLATE  LXV.  Traffic  record  blank 148 

PLATES  LVI  to  LXX1I.  Appendix  (!;  traffic  diagrams.-  152-158 
PLATES  LXX1II  to  LXXXIV.  Api*mdix  H;  condition  dia- 
grams   .   160-171 


(4) 


LIST  OF  TABLES 


TABLE  1.  Analysis  of  bituminized  aggregates  used  in  oil 
top 

TABI.K    2.  Construction  and  costs 

TABLE  3.  Recapitulation  of  work-done  schedule,  giving 
payments  made  for  construction,  labor,  and 
materials,  including  engineering,  equipment, 
and  administration  charges 

TABLE  4.  Resume  estimated  costs  and  payments  made 
for  labor  and  materials  on  contract  anil  day- 
labor  road-construction  work  done,  by  divi- 
sions, in  California  to  July  1,  1920 

TABLE  5.  Resume  estimated  costs  and  payments  made 
for  labor  and  materials  on  contract  road- 
construction  work,  by  divisions,  in  California 
to  July  1,  1920 

TABLE  6.  Resume  estimated  costs  and  payments  made 
for  labor  and  materials  on  day-labor  road- 
(i instruction  work,  by  divisions,  in  California 
to  July  ].  1920 

TABLE  7.  California  Federal-aid  projects  to  November  1, 
1920 _' 

TABLE  8.  Reconciliation  of  highway  maintenance  sched- 
ule. California,  with  statement  of  condition 
of  funds  July  1.  1920 

TABLE  9.  Recapitulation  of  maintenance  costs :  Schedule 
J,  details  of  administrative  expense,  motor- 
vehicle  fund,  maintenance  schedule  by  de- 
partments for  headquarters  and  divisions 

TABLE  10.  Total  motor-vehicle  fund  expenditure,  highway 
maintenance  schedule,  all  divisions  consoli- 
dated, by  types 

TABLE  11.  Total  earth  and  general  maintenance  charges, 
by  divisions 

TABLE  12.  Total  oiled  earth  maintenance  charges,  by  divi- 
sions   

TABLE  13.  Total  oil  macadam  maintenance  charges,  hy 
di  visions 

TABLE  14.  Total  concrete  base  maintenance  charges,  by 
divisions 

TABLE  15.  Total  oiled  concrete  maintenance  charges,  by 
divisions 

TABLE  !<?.  Total  Topeka-on-concrete  maintenance  charges, 
by  divisions 

TABLE  IT.  Total  asphaltic  concrete  maintenance  charges, 
by  divisions 


rage. 

in 

21 


40 
40 
40 

40 
49 

54 
5G 


Pag?. 

TABLE  18.  Detailed  costs  of  maintenance  and  improve- 
ment of  32.45  miles  of  oil  macadam  pave- 
ment, distributed  by  items 58 

TABLE  19.  Costs  of  32.45  miles  of  oil  macadam  pavement-        5S 

TABLE  20.  Showing  the  classified  condition  of  concrete 
pavement  built  each  year  by  State  highway 
commission 62 

TABLE  21.  Showing  all  classified  concrete  pavement  built 
by  the  State  (surfaced  and  unsurfaced  com- 
bined)   62 

TABLE  22.  Concrete  pavement  classes  and  underlying  soil 

types 62 

TABLE  23.  Showing  all  roads,  constructed  and  under  con- 
struction, in  the  California  State  system,  by 
types  and  by  years- completed 62 

TABLE  24.  Showing  percentage  of  shrinkage,  moisture 
equivalent,  and  moisture  content  of  subgrade 
soils 78 

TABLE  25.  Showing  percentage  of  coarse  aggregate  in  con- 
crete cores  by  planimeter  measurement 87 

TABLE  26.  Showing  average  compression  tests  of  concrete, 
averaged  by  age,  mix.  and  class  of  pave- 
ment   87 

TABLE  27.  Showing  average  compression  tests  of  concrete, 
averaged  by  mix,  route,  and  class  of  pave- 
ment   ;_  87 

TABLE  28.  Showing  comparative  compression  tests  of  con- 
crete check  cores 88 

TABLE  29.  Approximate  total  motor-vehicle  registration 

and  revenues,  by  years 91 

TABLE  3<>.  Summary  of  bus-line  data,  lines  in  whole  or  in 

part  traversing  State  highways 100 

TABLE  31.  Summary  table  showing  truck-traffic  data 102 

TABLE  32.  Schedule  of  interest  and  principal,  first  bond 

issue.  SIS.000.000 133 

TABLE  :-K5.  Schedule  of  interest  and  principal,  second  bond 

issue,  $15.000,000 !£> 

TABLE  34.  Approximate  total  bond  requirements,  first  and 

second  issues 134 

TABLE  35.  Schedule  of  interest  and  principal,  third  bond 

issue,  $40,000,000 134 

TABLE  36.  Approximate  total  bond  requirements,  first,  sec- 
ond, and  third  issues 134 

15) 


DEPARTMENT  OF  AGRICULTURE, 

Washington,  D.  C.,  February  IS,  19*21. 
The  CALIFORNIA  HIGHWAY  COMMISSION  AND  HIGHWAY  ENGINKEH, 

Sacramento,  Calif.  • 

GENTLEMEN:  I  take  pleasure  in  transmitting  a  report  of  the  study  of  the  California  highway  system,  made 
by  the  Bureau  of  Public  Roads  in  compliance  with  your  request  of  June  25,  1920.  I  trust  this  study  may  prove 
of  service  to  the  California  Highway  Commission  and  the  people  of  California  in  continuing  their  program  of 
highway  development  upon  which  such  splendid  advancement  has  already  been  made. 

Very  truly,  yours, 

-  E.  T.  MEREDITH,  Secretary. 
(6) 


FOREWORD 


AN  adequate  review  of  the  results  which  have  been 
secured  by  the  development-  of  any  system  of 
State  highways  must  follow  to-day  an  uncharted  course. 
The  essentials  and  nonessentials  of  such  a  task  have  not 
yet  been  sufficiently  classified  to  avoid  the  gathering, 
on  one  hand,  of  material  which  modifies  only  slightly 
the  final  conclusions,  or,  on  the  other,  to  insure  that  all 
vital  data  and  information  is  secured. 

The  California  study  is  the  most  comprehensive 
study  of  results  obtained  through  the  development  of  a 
State  highway  system  that  has  yet  been  undertaken. 
The  work  of  this  study  has  followed  two  principal 
lines,  one  that  includes  those  questions  that  are  engi- 
neering in  character  and  the  other  those  that  are  eco- 
nomic in  character.  These  two  groups  of  questions  are 
so  interrelated  and  so  interdependent  that  they  can  not 
be  separated.  All  road  improvement  is  a  means  to  an 
end — improved  transportation  facilities.  The  proper 
development  of  such  facilities  ought  to  be  based  on  both 
the  engineering  and  economic  considerations  involved. 
But  the  practical  application  of  these  considerations  is 
always  modified  by  the  attitude  of  the  public. 

For  the  purpose  of  this  study,  the  principal  opera- 
tion was  to  classify  all  the  pavement  laid.  This  classi- 
fication covered  1.262  miles,  from  which  a  complete 
record  of  condition  of  all  concrete  pavement  for  each 
one-tenth  mile  resulted,  and  is  supported  by  7,500  con- 
secutive photographs  filed  in  the  bureau.  It  is  recorded 
completely  by  diagram.  Associated  with  this  classifi- 
cation there  were  drilled  638  cores  through  the  pave- 
ment at  intervals  on  800  miles  of  the  highway  between 
Red  Blurt'  and  San  Diego;  481  of  these  cores  were  tested 
and  all  were  carefully  examined  and  measured.  A 
large  number  have  been  photographed  for  this  report. 

Twelve  special,  intensive  studies  of  failed  portions 
of  the  road  surface  resulted  in  a  great  volume  of  data 
which  can  only  be  summarized  in  the  report,  but  which 
clearly  establish  in  practically  every  instance  the  nature 
and  cause  of  the  defective  pavement. 

In  connection  with  the  many  selected  special  studies, 
soil  moisture  determinations  were  made  for  cross  sec- 
tions of  the  road  by  borings  at  close  intervals.  Tests 
for  moisture  content,  moisture  equivalent,  and  for 
shrinkage  were  made  at  the  laboratory  of  the  Uni- 
versity of  California. 

A  complete  classification  of  the  subgrade  soil  under 
all  the  pavement  on  the  State  highway  system  was 
made  by  soil  experts  and  plotted  on  the  pavement  con- 
dition diagrams.  Below  each  concrete  core  samples 
of  soil  were  also  removed  and  classified. 

A  State-wide  traffic  census  was  taken  at  10.3  stations 
for  an  equivalent  16-hour  week  day,  and  many  Sunday 
and  supplementary  counts  were  also  taken.  This  traffic 
record  revealed  the  amount  and  character  of  travel  for 
the  summer  interval  on  the  State  highways.  It  has 


resulted  in  a  set  of  traffic  diagrams  from  which  the 
total  annual  duty  of  the  California  highway  system  has 
been  estimated,  and  also  the  corresponding  revenue,  or 
the  operating  income  to  the  community. 

Supporting  the  traffic  count,  extensive  field  studies 
were  made  of  the  producing  agricultural  areas  for  9 
groups  of  agricultural  crops  and  the  peak  load  in  tons 
and  the  peak  interval  in  time  for  these  crops  was  de- 
termined. This  study  covered  the  main  valleys  of  the 
State. 

During  the  progress  of  field  investigation  there  was 
carried  on  at  Sacramento  a  complete  audit  and  analysis 
of  all  the  books  of  the  State  highway  commission  office. 
This  work  resulted  in  a  satisfactory  and  complete  dis- 
tribution of  all  costs  of  survey,  construction,  engineer- 
ing and  maintenance,  and  prodviced  summaries  that 
account  for  practically  every  dollar  made  available  for 
the  use  of  the  commission. 

Painstaking  efforts  have  been  made  to  secure  all  the 
data  necessary  to  present  the  conclusions  impartially 
and  uncolored.  There  is  much  of  value  in  the  record  to 
be  made  available  after  more  research. 

Within  the  past  five  years  an  unprecedented  demand 
has  been  made  upon  the  highway  administrator  and 
highway  engineer  to  produce  a  large  mileage  of  eco- 
nomical and  serviceable  highways.  The  extent  to  which 
he  has  produced  this  combined  result  is  the  true  stand- 
ard of  measurement  of  his  achievement. 

Let  the  present  traffic  service  rendered  by  the  State 
highways  of  California,  conservatively  estimated,  we 
believe  at  400,000,000  vehicle-miles  per  year,  be  multi- 
plied by  any  reasonable  unit  rate  to  indicate  the  pres- 
ent annual  returns  to  the  people  on  the  total  invest- 
ment to  date  of  about  $42.000.000. 

Now  turn  to  one  paragraph  from  the  report  selected 
as  the  most  vital  to  be  repeated  here : 

The  financial  administration  has  been  scrupulously  honest 
and  careful  and  the  administrative  and  engineering  costs  have 
not  been  excessive,  nor  have  final  costs  much  exceeded  the  engi- 
neer's estimate. 

There  should  be  no  hesitation  in  going  forward  with 
confidence. 

The  bureau  gratefully  acknowledges  the  cooperation 
and  assistance  extended  by  the  Bureau  of  Soils  of  the 
Department  of  Agriculture,  the  Bureau  of  Standards 
of  the  Department  of  Commerce,  the  University  of 
California,  the  California  Highway  Commission,  and 
the  highway  engineer. 

The  field  studies  and  the  preparation  of  this  report 
were  carried  forward  under  the  immediate  direction  of 
Dr.  L.  I.  Hewes  and  T.  Warren  Allen,  general  in- 
spectors of  the  Bureau  of  Public  Roads. 

THOS  H.  MACDONALD, 

Chief  of  Bureau. 
FEBRUARY  18.  1921. 


(7) 


DECEMBER  21.  1920. 
Mr.  T.  H.  MACDOXALD, 

Chief  of  the  Bureau  of  Public  Roads, 

Washington,  D.  C. 

In  accordance  with  your  telegraphic  instructions  of  July  8,  following  the  request  of  June  2.">,  1920,  from  the 
California  Highway  Commission  and  highway  engineer,  a  study  has  been  made  to  determine  the  operations 
under  the  three  California  State  highway  bond  issues  and  the  costs  thereof,  the  present  condition  of  the  roads 
built  and  so  far  as  possible  the  causes  of  existing  conditions  and  also  to  determine  a  measure  of  the  usefulness 
and  duty  of  the  highway  system,  and  to  develop  recommendations  for  the  future.  A  report  of  this  study  is 
hereby  submitted  in  three  parts  which  refer,  respectively,  to  data,  discussion,  and  conclusions. 

Acknowledgment  of  the  continuously  courteous  response  by  the  State  highway  commission  and  the  highway 
engineer  to  every  request  to  facilitate  this  study  is  gratefully  recorded. 

Very  respectfully, 

L.  I.  HEWES,  General  Inspector. 
(8) 


DATA 


c 


HISTORICAL 

•ALIFORNIA.  in  common  with  other  States,  ex-  quirements.  and  it  is  probable  that  the  State-wide  in- 

perienced  the  preliminary  processes  associated  with  spection  and  study  made  by  them,  as  reflected  in  their 

the  adjustment  of  highway  conditions  to  the  demands  report  and  bulletins,  was  later  a  valuable  guide  to  the 

of  developing  industry.    Some  of  the  earliest  road  work  State  highway  commission  in  its  work  of  laying  out 

was  done  by  private  individuals  or  corporations  and  the  system  which  is  now  building^  This  is  evidenced 

the  roads  operated  as  toll  roads.    These  roads  were  later  by  the  closeness  with  which  the  present  system  coin- 

taken  over  by  the  State.  cides  with  that  shown  on  the.  1896  map.^No_funds 

A  definite  movement  by  the  State  for  improved  high-  for  construction  were  provided  by  the  act  ofl895.] 

ways  began  March  27.  1895,  by  a  legislative  act  provid-  (This  act  of  1895  was  repealed  in  April.  1897r~antl  a 

ing  for  a  bureau  of  highways  of  three  members  to  be  department  of  highways  was  created.    The  department 

appointed   by   the  governor  for  terms  of  two  years.  °f  highways  act  provided  for  three  highway  commis- 

The  duties  of  this  bureau  included  a  study  of  the  high-  sioners  to  be  appointed  by  the  governor,  to  serve  for  a 

way  laws  of  California  and  of  other  States,  a  study  of  period  of  two  years,  at  the  end  of  which  »time  the  gov- 

the  physical  features  of  the  State  and  their  relation  ernor  was  to  appoint  for  a  term  of  four  years  and  even- 

to  a  system  of  roads,  and  of  the  economic  and  legal  four  years  thereafter  one  civil  engineer  as  highway 

status  of  the  highways  in  each  county  in  the  State,  commissioner,  in  whom  should  be  vested  all  the  powers 

together  with  a  study  of  the  road  work  done  in  the  a°d  duties  attaching  to  commissioners  first  appointed 

preceding  ten  years  by  the  counties,  and  costs  therefor,  under  this  act;?  These  appointments  were  made  as  re- 

and  a   report  with  conclusions  and  recommendations  quired  by  law  and  the  department  of  highways  car- 

of  such  measures  as  the  bureau  deemed  advisable.  ried  on  certain  work  until  1907,  when  it  was  merged 

The  bureau  of  highways  was  organized  April   11,  by  legislative  enactment  into  the  State  department  of 

1*05.  and  November  25.  1896,  rendered  a  report  recom-  engineering.     The  money  appropriated  from  time  to 

mending  a  proposed  system  of  State  highways  of  28  time  by  the  State  legislature  for  certain  "  State  roads  '' 

routes.     The  report  stated  that  the  principles  had  in  was  expended  under  the  direction  of  this  department 

mind  in  outlining  a  system  of  highways  were  :  of  highways.    The  details  of  work  done  and  money  ex- 

First.  To  lay  them  out  along  the  lines  which   the  pended  are  shown  in  the  published  reports,  copies  of 

physical  features  of  the  State  forever  fix  as  the  which  are  on  file  in  the  document  department  of  the 

easiest  lines  of  communication.  State  library  at  Sacramento. 

Second.  To  traverse  the  great  belts  of  natural  wealth  In   $907  the   State  department  of  engineering   was 

of  the  State  by  one  or  more  highways.  created  by  law.     It  was  composed  of  an  advisory  board 

Third.  To  connect  all  the  large  centers  of  population,  consisting  of  the  governor  as  ex  officio  member  and 

Fourth.  To  reach  each  county  seat  in  the  State  and  chairman,  the  State  engineer,  general  superintendent 

tie  in  with  the  rounty  roads.  of  State  hospitals,  and  the  chairman  of  the  State  board 

The  report  with  a  map  showing  the  State  road  sys-  of  harbor  commissioners  of  San  Francisco.     The  State 

tern  recommended  is  filed  in  the  documents  department  engineer  was  appointed  by  the  governor. 

of  the  State  library  in  Sacramento.     A  copy  of  the  The  legislature  of  1907  took  action  to  forward  road 

map.  designated  "System  recommended  in   1896,"  is  building  in  the  State,  by  what  was  known  as  the  Savage 

attached  to  this  report  as  Plate  I.  Act.   which   permitted   counties   to   bond   their   whole 

The  report  shows  that  the  total  amount  expended  property  for  road  improvement  purposes. 

by  counties  on  highway  work  during  the  period  of  After  the  creation  of  the  original  bureau  of  high- 

1885-1895  approximated  $18.000.000.   and  states  "  no  ways  the  California  Legislature  from  time  to  time  took 

adequate  return  therefor  is  apparent/'    In  Appendix  A  over  certain   wagon   roads   as  "  State  roads."     These 

of  the  original  report  of  the  bureau  of  highways  are  special   roads  have  l>een   almost  exclusively   roads  in 

shown  the  road  expenditures  by  counties  for  the  years  the  mountainous  regions  and  only  nominal  appropria- 

lHX6vto  1895,  inclusive.  tions  were  made  for  their  improvement.     The  total  of 

The  members  of  the  bureau  of  highways,  in  addition  such  appropriations  up  to  191.3  for  all  these  roads  \va- 

to  their  other  duties,  traveled  about  the  State  to  ac-  $807.243.     These   roads   were    later   in   charge   of   the 

quaint   themselves   with   highway  conditions   and   re-  State  department   of  engineering  and  doubtless  pre- 

(9) 


10 


pared  the  public  and  the  legislature ' for  the  more  im- 
portant legislation  of  1909. 

With  the  support  of  the  governor  agitation  for  an 
improved  highway  system  in  1909  became  acute  and 
resulted  in  the  passage  by  the  legislature  of  the  "  State 
highways  act "  of  March  22,  providing  for  an  issue  of 
bonds  to  the  amount  of  $18,(XX),000  for  the  construc- 
tion and  acquisition  of  a  system  of  State  highways.1 
This  act  was  approA'ed  by  a.  majority  of  the  electors  of 
the  State  November  8,  1910.  ' 

The  legislature  of  1911  passed  what  is  commonly 
known  as  the  "  Chandler  Act,"  adding  three  members 
to  the  department  of  engineering,  to  be  appointed  by 
the  governor,  whose  duty  would  be  to  carry  out  the 
provisions  of  the  first  highway  bond  issue.  At  a  meet- 
ing in  August,  1911,  of  the  advisory  board  of  the  de- 
partment of  engineering,  an  enabling  resolution  desig- 
nated the  three  members  appointed  under  the  "  Chand- 
ler Act"  as  an  executive  committee  to  be  known  as 
the  California  Highway  Commission,  and  vested  in  the 
commission  the  actual  handling  of  the  work  of  con- 
structing and  acquiring  the  State  highway  system 
under  the  bond  issue  of  1909.  A  highway  engineer 
was  appointed  by  the  governor  and  was  made  executive 
officer  of  the  commission.  J 

A  law  passed  in  March,  1905,  provided  for  registra- 
tion of  motor  vehicles  with  a  fee  of  $2.00.  There  were 
minor  amendments  in  1907,  and  in  1913  an  act  known 
as  the  motor  vehicles  act  was  passed  requiring  annual 
registration  of  motor  vehicles  and  increasing  the  fee 
for  such  registration.  This  act  was  amended  by  an  act 
of  1915,  and  again  in  1917  and  1919.  The  act  of  1913 
provided  that  half  the  net  proceeds  of  motor  vehicle 
licenses  should  be  returned  to  the  respective  county 
road  funds,  and  that  the  remainder  should  be  devoted 
to  the  maintenance  of  State  roads  and  highways,  and 
the  amendment  of  1915  changed  the  wording  to  per- 
mit such  moneys  to  be  used  also  for  improvements  of 
State  roads  and  highways.  Further  details  of  the  mo- 
tor vehicle  laws  will  be  found  in  Appendix  C. 

The  advisory  board  imposed  upon  the  California 
Highway  Commission  the  further  duty  of  maintaining 
the  State  highways  constructed  under  the  "  State  high- 
ways act."  In  1915  the  State  legislature  passed  the 
second  "  State  highways  act "  providing  for  a  second 
issue  of  bonds  for  $15,000,000.  This  act  was  indorsed 
by  the  people  at  an  election  in  191.6. 

The  State  legislature  of  1917  gave  the  California 
Highway  Commission  statutory  recognition  as  a  sub- 
division of  the  department  of  engineering,  expressly 
prescribed  its  powers  and  duties,  and  transferred  all 
State  roads  theretofore  constructed  under  the  super- 
vision of  the  State  engineer  to  the  commission. 

1  For  details  of  the  three  State  highway  bond  issues  see  Appendix  A. 


(The  California  Highway  Commission  thus  in  1917 
became  a  statutory  body  in  immediate  control  and  su- 
pervision of  all  State  road  and  State  highway  ac- 
tivities of  California,  and  is  now  carrying  out  the 
provisions  of  the  bond  issues  of  1909  and  of  those  of 
1915  and  1919.  The  bond  issue  of  1919  for  $40,000,00(1 
was  submitted  by  the  legislature  to  the  vote  of  the 
people  July  1,  1919,  and  carriedo  In  the  campaign  for 
this  bond  issue  the  California  State  Automobile  Asso- 
ciation of  San  Francisco  and  the  Automobile  Club  of 
Southern  California  of  Los  Angeles  were  active  advo- 
cates of  the  law. 

The  California  State  highway  bonds  are  all  of  the 
deferred  serial  type  and  with  maximum  terms  of  from 
40  to  45  years.  The  beginning  of  the  repayment  of 
principal  is  deferred  about  seven  years  in  each  issue. 
The  counties  were  required  by  the  original  State  high- 
ways act  to  pay  the  entire  interest  on  those  bonds,  the 
proceeds  of  which  are  expended  by  the  State  Highway 
Commission  within  their  respective  boundaries. 

The  bond  issue  of  1909  for  $18,000.000  was  carried 
by  a  bare  majority.  The  second  serial  bond  issue, 
that  of  1916  for  $15.000,000,  was  carried  by  every 
county  in  the  State  by  a  vote  of  nearly  four  to  one. 
The  third  serial  bond  issue,  that  of  1919  for  $40,000.000, 
carried  by  a  vote  of  approximately  seven  to  one. 
Further  details  of  each  bond  issue  are  described  in 
Appendix  A. 

There  is  shown  graphically  in  Plate  II  the  progress 
of  the  total  tax  requirements  to  pay  interest  and 
principal  for  the  first  two  bond  issues  which  total 
$33,000,000,  and  in  the  same  figure  the  approximate 
progress  of  necessary  total  payments  of  both  interest 
and  principal  on  all  the  issues  which  total  $73.000.000. 

The  State  highways  act  of  1909,  which  provided  the 
first  bond  issue,  stated : 

The  moneys  placed  in  the  State  highway  fund,  pursuant  to 
the  provisions  of  this  section,  shall  be  used  exclusively  for  the 
acquisition  of  rights  of  way  for  and  the  acquisition  and  con- 
struction of  said  system  of  State  highways.  The  route  or 
routes  of  said  State  highways  shall  be  selected  by  the  depart- 
ment of  engineering  and  said  route  shall  be  so  selected  and  said 
highways  so  laid  out  and  constructed  or  acquired  as  to  consti- 
tute a  continuous  and  connected  State  highway  system  run- 
ning north  and  south  through  the  State  traversing  the  Sacra- 
mento and  San  .Toa<|uin  Valleys  and  along  the  Pacific  coast  by 
the  most  direct  and  practicable  routes,  connecting  the  county 
seats  of  the  several  counties  through  which  it  passes  and  join- 
ing the  centers  of  population,  together  with  such  branch  roads 
as  may  be  necessary  to  connect  therewith  the  several  county 
seats  lying  east  and  west  of  such  State  highway.  *  *  *  The 
highway  constructed  or  acquired  under  the  provisions  of  this 
act  shall  be  permanent  in  character  and  finished  with  oil  or 
macadam,  or  a  combination  of  both,  or  of  such  other  material 
as  in  the  judgment  of  the  said  department  of  engineering  shall 
be  most  suitable  and  best  adapted  to  the  particular  locality 
traversed. 


11 


PLATE 


CALIFORXIA 

OITLIXIXG  WE  STATE  HtGtWQT  SYSTEM 

THE  BIHEAT  OKMOHVi'AYS 


12 


PLATE    II 


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SSSSS^iES^EoO^T'MO 

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13 


The  routes  selected  by  the  commission  in  compliance 
with  this  law  totaled  3.082  miles  and  are  shown  in  detail 
in  Appendix  A  and  in  the  frontispiece  and  Plate  III. 

The  second  bond  issue  provided  by  the  legislative  act 
of  May  20.  1915,  was  emphatically  approved  by  the 
voters  in  November,  1916.  The  State  highway  commis- 
sion by  the  end  of  that  year  had  constructed  approxi- 
mately 835  miles  of  concrete  pavement  and  graded  323 
miles  in  addition,  and  it  was  obvious  that  the  original 
s  1  •>  .000,000  was  insufficient  to  complete  the  original  sys- 
tem. The  funds  from  the  new  bond  issue  were  not 
available  until  July.  1917.  but  the  old  fund  was  ex- 
hausted January.  1917.  To  carry  on  work  during  the 
intervening  months  money  was  borrowed  from  the 
motor-vehicle  fund. 

The  State  highways  act  in  1915  stated : 

Of  the  moneys  placed  in  the  said  second  State  highway  fund, 
pursuant  to  the  provisions  of  this  section,  the  sum  of  $12,000,000, 
or  so  much  thereof  as  may  be  necessary,  is  hereby  made  avail- 
able, and  shall  be  used  exclusively  for  the  acquisition,  construc- 
tion, and  improvement  of  the  uncompleted  portions  of  the  sys- 
tem of  State  highways  prescribed  by  said  "  State  highway  act " 
(act  of  1909).  And  of  said  moneys  so  placed  in  said  second 
State  highway  fund,  the  sum  of  $3,000,000,  or  so  much  thereof 
as  may  be  necessary,  is  hereby  made  available,  and  shall  be 
used  exclusively  for  the  acquisition,  construction,  and  improve- 
ment of  certain  extensions  from  said  system  of  State  highways 
prescribed  by  said  State  highways  act1  *  *  *  :  Provided,  hoic- 
»(•(/•.  That  excuses  of  the  acquisition,  construction,  and  im- 
provement of  the  extensions  above  enumerated  and  the  acqui- 
sition of  right  of  way  therefor  shall  be  partly  borne  by  the 
county  or  counties  in  which  said  extensions  lie.  the  extent  and 
character  of  such  division  of  ex|>enses  between  the  State  and 
county  sliull  rest  for  final  determination  with  the  State  depart- 
ment of  engineering,  and  the  State  department  is  hereby  au- 
thorized to  enter  into  such  agreements  and  undertakings  as  are 
necessary  to  properly  carry  out  the  intent  of  this  section. 

The  first  biennial  report  of  the  California  Highway 
Commission  was  issued  December  31.  1918.'  and  closes 
with  the  remark : 

The  data  embodied  herein  may  surest  still  further  legisla- 
tion, and  any  cooperation  by  the  legislature  of  1919  tending  to 
the  betterment  of  State  highway  work  will  \te  appreciated  by 
the  commission. 

=  There  follows  in  the  law  a  list  of  1598  miles  of  prescribed  extensions 
given  in  detail  in  Appendix  A  and  which  are  shown  in  the  maps  of  the 
frontispiece  and  Plate  III. 

1  First  biennial  report  of  the  California  .State  Highway  Commission,  a 
.subdivision  of  the  department  of  engineering  of  the  State  uf  California, 
Dec.  31,  ISUS.  141i  pp.  A  complete  report  of  activities  of  the  commis- 
sion to  July  1,  1918. 


The  legislature  of  1919  passed  the  third  bonding  act 
and  on  July  1,  1919,  at  a  special  election  called  for  the 
purpose  the  electors  indorsed  the  act. 

This  State  highway  act  of  1919  states: 

The  moneys  in  said  "  third  State  highway  fund "  shall  be 
used  by  the  State  department  of  engineering  for  the  acquisition, 
construction,  and  improvement  of  uncompleted  portions  of  the 
system  of  State  highways  prescribed  by  the  act  of  the  legis- 
lature approved  May  22,  1909.  known  as  the  "  State  highways 
act."  and  the  act  of  the' legislature  approved  May  20,  1915,  and 
known  as  the  "  State  highways  act  of  1915,"  and  certain  exten- 
sions thereof  described  in  said  last-named  act,,  and  also  for  the 
acquisition  of  the  rights  of  way  for  and  the  acquisition,  con- 
struction, and  improvement  of  the  following  additional  high- 
ways as  State  highways.' 

With  these  extensions  the  designated  State  highway 
system  now  totals  5,560  miles. 

It  is  to  be  noted  that  the  California  State  Automobile 
Association  and  the  Automobile  Club  of  Southern  Cali- 
fornia both  took  an  active  part  in  campaigning  in  favor 
of  the  various  bond  issues  and  more  recently  in  the 
campaign  to  authorize  an  increased  interest  rate  for  the 
third  bond  issue. 

Except  for  separate  appropriations  for  salaries  and 
expenses  of  commissioners  and  highway  engineer,  the 
funds  put  at  the  disposal  of  the  State  Highway  Com- 
mission consist  of  those  funds  derived  from  the  sales  of 
bonds  issued.  50  per  centum  of  the  net  money  collected 
on  account  of  the  State  motor  vehicle  act,  certain 
county,  municipal,  and  private  funds,  special  State  ap- 
propriations, and  Federal-aid  funds.  The  total  of 
these  funds  up  to  July  1.  1920,  is  $42.007 ,330.07,  made 
up  as  follows: 

First  bond  issue $18,002,129.00 

Second  bond  issue 13,000,025.00 

Third  bond  issue 3, 000,  000.  00 

Motor-vehicle  funds 0.539,563.21 

County,  municipal,  and  private  funds 632, 120.  73 

Special  State  appropriation 265,308.36 

Federal-aid  funds—         568,183.77 


Total -*2.  007,  330. 07 

The  total  expenditure  for  construction  and  mainte- 
nance to  July  1.  1920,  is  $41,790,884.41. 

4  There  follows  in  the  law  a  description  of  30  adjoined  routes  which 
total  1,798  miles  and  which  are  shown  in  the  maps  of  the  frontispiece 
and  Plate  III.  and  listed  iu  Appendix  A. 


14 


SYSTEMS  DESIGNED 


The  system  of  State  highways  laid  out  in  1896  by  the 
old  bureau  of  highways  totaled  approximately  4,500 
miles,  which  was  about  10  per  cent  of  the  total  of 
45,056  miles.  No  construction  was  done  o\n  this  system 
as  such. 

/The  law  authorizing  the  bond  issue  of  1909  provided 
tar  a  system  of  highways  and  the  laws  of  1915  and 
1919  extended  the  1909  system  as  above  mentioned. 
Complying  with  the  conditions  imposed  by  law  the 
State  Highway  Commission  laid  out  the  road  system 
shown  on  the  relief  map  *  of  the  frontispiece,  which 
also  shows  separately  the  adjoined  routes  provided  by 
the  acts  of  1915  and  1919. 

/The  mileage  of  the  system  of  1909  is  approximately 
3\OS2,  or  6.4  per  Cent  of  the  estimated  total  mileage  of 
45,069.B  In  1910  the  total  mileage  in  California  was 
estimated  by  the  United  States  Bureau  of  Public  Roads 
at  61.039.  The  combined  mileage  of  1909,  1915,  and 
1919  is  5,560,  or  9.1  per  cent  of  the  total  estimated  road 
mileage  in  the  State  for  1916.' 

Plate  III  is  a  map  showing  the  system  laid  out  by  the 
State  Highway  Commission  in  following  out  the  pro- 
visions of  the  law  of  1909,  and  separately  the  adjoined 
roads  described  in  the  highway  acts  of  1915  and  1919, 
and  the  relation  of  all  these  roads  to  the  land  classed 
as  agricultural.  The  combined  system  is  divided  into 
numbered  routes  and  these  routes  within  each  county 
are  subdivided  into  lettered  sections.  The  roads  in 
this  combined  system  are  those  which  the  State  High- 
way Commission  has  been  engaged  in  improving. 

BELATION  OF  TOTAL  SYSTEM  TO  AGRICULTURE  AND 
POPULATION. 

It  will  be  seen  from  Plate  III  that,  although  the 
system  of  highways  laid  out  by  the  commission  under 
the  act  of  1909  is  a  restricted  through  system  which  in 


general  parallels  the  railroads,  it  supplies,  to  a  consid- 
erable extent,  market  roads  for  the  great  agricultural 
valleys.  The  land  classed  in  this  map  as  agricultural 
is  plotted  from  the  data  of  the  United  States  Bureau  of 
Soils  and  from  that  of  the  University  of  California. 
It  is  clear  that  the  systems  adjoined  by  the  legislatures 
of  1910  and  1919  are  also  well  placed  to  serve  additional 
market  areas. 

The  system  of  roads  laid  out  in  compliance  with  the 
act  of  1909  served  directly  about  47  per  cent  of  the 
State  population  exclusive  of  the  people  of  San  Fran- 
cisco and  Los  Angeles  (as  listed  by  the  detailed  census 
figures  of  1910  for  incorporated  cities).  These  pro- 
posed roads  also  served  directly  an  additional  un- 
known percentage  of  the  rural  population  living  in 
small  unincorporated  places  and  consequently  not  listed 
separately  in  the  census  but  on  the  highway,  and  lastly 
an  undetermined  increment  of  rural  population  not 
living  in  such  incorporated  and  unlisted  cities  but  close 
to  the  highways.  If  the  cities  of  San  Francisco  and 
Los  Angeles  are  included  it  may,  therefore,  be  esti- 
mated that  at  least  66  per  cent  of  all  the  people  in 
California  in  1910  lived  on  or  immediately  adjacent 
to  the  highway  system  laid  out  under  the  first  bond 
issue. 

The  available  19-20  census  figures  show  that  at  pres- 
ent 54  per  cent  of  the  population  of  California,  exclu- 
sive of  San  Francisco  and  Los  Angeles,  live  in  places 
on  or  Immediately  adjacent  to  the  system  of  highways 
now  built  or  projected  (including  those  highways  to  be 
built  under  the  third  bond  issue).  Furthermore,  the 
figures  show  that  while  the  total  increase  of  population 
in  the  State  was  44  per  cent  from  1910  to  19-20.  the 
increase  in  listed  population  only  on  the  highway  built 
and  proposed  and  not  including  San  Francisco  and 
Los  Angeles  was  63  per  cent. 


ORGANIZATION 


The  organization  of  the  State  highway  department 
as  modified  .January  15,  1920,  is  shown  in  Plate  IV. 
The  principal  change  made  at  that  time  was  an  increase 
-in  the  highway  engineer's  staff  from  one  to  six.  This 
staff  now  consists  of  a  construction  engineer,  a  main- 
tenance engineer,  an  equipment  engineer,  a  bridge  engi- 
neer, and  two  general  inspectors.  The  construction  en- 
gineer is  the  senior  staff  engineer  and  in  the  absence  of 

8  From  the  model  by  Prof.  N.  F.  Drake,  of  Lelnnd  Stanford  Univer- 
sity. 

*  Estimate  by  the  U.  S.  Bureau  of  Public  Roads  in  1009.  A  similar 
estimate  for  1904  was 


the  highway  engineer  acts  in  his  stead.  The  general 
inspectors,  one  assigned  to  the  northern  part  of  the 
State  and  the  other  to  the  southern,  act  as  the  Held 
representatives  of  the  highway  engineefc 

It  is  believed  that  the  recent  increases  in  the  stuff  will 
considerably  facilitate  the  handling  of  the  great  volume 
of  business  passing  through  the  offices  of  the  highway 
engineer. 

Other  branches  of  the  headquarters  organization 
are  a  legal  department,  which  handles  right-of-way 
matters,  a  disbursing  department,  an  accounting  de- 


15 


PLATE    III. 


CA1J  FORMA 


MAIL  iii^invvi  .-i.viii 

A'.i, 


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--... 


16 


PLATE     VI. 


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17 


partment,  a  purchasing  department,  and  a  headquarters 
engineering  department,  all  of  which  are  shown  on  the 
chart,  with  a  suggestion  of  their  duties. 

The  headquarters  organization  at  Sacramento  at 
fh'e  present  time  consists  of  about  71  employees^ 

The  State  is  subdivided  into  seven  divisions,  with  a 
division  engineer  in  charge  of  each.  A  division  office 
is  maintained  in  the  principal  city  in  the  division.  The 
division  engineer  has  responsible  charge  of  the  location, 
construction,  and  maintenance  of  the  State  roads  and 
highways  in  his  division  and  reports  to  the  highway 
engineer. 

The  number  of  assistant  division  engineers  in  each 
division  depends  on  the  size  of  the  division  and  the 
volume  of  the  work  under  way.  Usually  there  are  two 
in  the  larger  divisions,  one  the  division  construction 
engineer  and  the  other  the  division  maintenance  engi- 
neer. In  the  absence  of  the  division  engineer  the  divi- 
sion construction  engineer  acts  in  his  stead.  There  is 
also  an  office  engineer  who  reports  directly  to  the 
division  engineer. 

In  each  division  there  are  the  necessary  chiefs  of 
survey  party  on  location,  chiefs  of  survey  party  on  con- 
struction, resident  engineers,  assistants,  etc.7 

The  procedure  in  the  case  of  a  project  proposed  by 
the  commission  for  improvement  is  approximately  as 
follows :  First  the  division  engineer  is  directed  to  make 
a  reconnaissance.  If  the  reconnaissance  is  favorably 
received,  the  commission  directs  the  highway  engineer 
to  proceed  with  surveys,  plans,  and  estimates.  The 
appropriate  divison  engineer  is  then  notified  of  this 
action,  and  this  is  his  authority  to  proceed. 

The  division  engineer  designates  the  controlling 
points  of  the  survey  and  assigns  a  chief  of  party  to  the 
work.  No  definite  estimates  of  cost  of  surveys  and 
plans  are  made  in  advance.  The  surveys  follow  de- 
tailed instructions  issued  by  the  highway  engineer. 
The  so-called  ''base-line  method"  has  been  uniformly 
used.  Drafting  and  designing  is  done,  as  a  rule,  at  the 
division  office  and  not  in  the  field.  The  division  engi- 
neer forwards  completed  plans  to  Sacramento,  where- 
upon field  inspections  are  made  and  plans  are  examined 
and  checked  in  a  general  way.  The  necessary  bridge  and 
structural  designs  are  made  in  the  bridge  department. 

The  law  requires  that  work  be  advertised  in  papers 
of  local  and  general  circulation  for  four  weeks.  If 
excessive  bids  are  received,  the  commission  may  order 
the  work  readvertised  or  done  by  day  labor. 

7  Tlie  State  civil  service  commission  through  examination,  open  to  anv 
Ain.-rii-au  citizen  resident  in  California,  supplies  to  the  Ilighway  Com- 
mission employees  below  the  grade  of  Slate  highway  engineer.  There 
are  six  classified  grades  in  the  highway  engineer  group.  tirade,  1 
includes  junior  draftsmen,  rodmen,  and  cbainmen.  at  salaries  of  $100 
I»T  month,  or  $85  per  month  and  board,  respectively  ;  and  lirail.-  VI 
includes  the  assistant  highway  engineers  and  division  engineers,  at 
salaries  of  $325  to  $400  per  month.  Competitive  examinations  are  re- 
quired for  promotion  from  one  grade  to  another,  and  the  civil  service 
must  sanction  promotion  within  gratk-s. 


The  preliminary  estimate,  as  approved  by  the  high- 
way engineer,  becomes  the  estimate  used  in  the  consid- 
eration of  bids.  Upon  receipt  of  bids  and  award  of 
contract,  allotment  equal  to  the  total  price  bid,  plus  the 
cost  of  materials  furnished  by  the  State,  plus  3  per 
cent  for  contingencies,  is  made  for  the  project.  The 
engineering  expense  of  handling  the  project  during 
construction  is  covered  by  a  separate  allotment. 

Upon  award  of  contract  and  allotment  of  funds  the 
division  engineer  is  authorized  to  proceed  with  the  con- 
struction engineering  work.  He  assigns  a  construction 
survey  party  to  this  work.  This  party  stakes  out  the 
line  in  accordance  with  the  approved  design  and  gen- 
eral instructions,  after  which  a  resident  engineer  with 
the  necessary  assistants  is  assigned  to  the  work.  The 
resident  engineer's  duty  is  to  see  that  the  job  is  com- 
pleted in  accordance  with  the  contract  and  specifica- 
tions, and  further  to  furnish  the  information  upon 
which  the  division  engineer  bases  partial  payment  esti- 
mates. The  information  for  the  partial-payment  esti- 
mate is  to  be  prepared  so  as  to  reach  the  division  engi- 
neers office  by  the  Saturday  nearest  the  15th  of  the 
month. 

Estimates  are  prepared  and  checked  in  the  division 
office,  signed  by  the  resident  engineer  and  division  en- 
gineer, forwarded  to  the  office  of  the  highway  engineer, 
where  they  are  again  checked  and  then  sent  to  the 
comptroller.  The  comptroller,  if  satisfied  that  pay- 
ment should  be  made,  places  the  amount  of  money 
called  for  in  the  estimate  at  the  disposal  of  the  State 
highway  engineer,  after  which  the  disbursing  office 
issues  a  check  to  the  contractor.  The  average  time 
from  estimate  to  payment  is  about  1-i  days. 

The  resident  engineer  assists  the  division  engineer  in 
preparing  the  final  report  and  the  final  estimate.  This 
estimate  is  signed  by  the  resident  engineer  and  the  divi- 
sion engineer,  and  transmitted  to  the  highway  engineer 
with  the  final  report  on  the  work.  The  estimate  is 
there  checked  and  payment  made  as  in  the  case  of  par- 
tial-payment estimates.  The  average  time  from  esti- 
mate to  payment  for  the  final  estimate  is  about  35  dav-. 

Maintenance  work  in  the  larger  divisions  is  handled 
by  a  division  maintenance  engineer,  in  the  smaller 
divisions  directly  by  the  division  engineer.  Mainte- 
nance is  divided  into  general  maintenance,  which  con- 
sists in  maintaining  the  road  in  the  condition  in  which 
it  is  left  upon  completion  of  construction  and  in  im- 
provement, which  consists  in  relocation  or  new  work 
and  in  reconstruction.  Reconstruction  consists  in  the 
rebuilding  of  considerable  portions  of  the  work.  The 
division  engineer  makes  a  detailed  estimate  quarterly 
of  the  amount  needed  for  the  general  maintenance  of 
each  of  the  State  highways  in  his  division.  This  amount, 
when  allowed,  becomes  an  allotment  for  the  work.  In 
the  case  of  improvement  or  reconstruction  an  estimate 


18 


is  made  by  the  division  engineer  at  such  times  as  he 
deems  such  work  necessary,  and  this  estimate  is  han- 
dled in  the  same  way  as  an  allotment  for  a  new  project. 
A  record  of  the  cost  of  maintenance,  subdivided  as  de- 
scribed above,  is  kept  in  the  highway  engineer's  office. 
(  Beginning  in  April,  1920,  all  the  division  engineers 
lira!  assistant  highway  engineers  have  been  required  to 
meet  at  the  headquarters  office  in  San  Francisco  on  the 
first  Monday  of  each  monthJ 

CONVICT  LABOR. 

The  legislature  passed  a  law  April  27,  1915,  permit- 
ting the  department  of  engineering  to  employ  State 
convicts  on  State  highways  under  its  supervision,  but 
placing  the  discipline  and  control  of  convicts  under 
jurisdiction  of  the  prison  directors.  The  entire  ex- 
pense of  convict  work  is  borne  by  the  department  of 
engineering.  The  convicts  must  not  do  any  work  of 
"  skilled  labor."  Their  terms  may  be  shortened  not  to 
exceed  one  day  for  two  on  the  road. 

Under  this  law  up  to  November  1.  1920,  grading  of 
about  115  miles  of  road  in  the  remote  districts  of 
northern  California  in  Divisions  I  and  II  has  been 
completed.  At  present  about  220  convicts  are  at  work. 
The  maximum  number  of  convicts  reported  employed 
at  one  time  in  one  camp  was  225  in  July,  1917,  in  Men- 
docino  County.  The  total  number  of  convicts  shipped 
to  the  two  camps  in  Mendocino  and  Humboldt  Coun- 
ties since  September,  1915,  is  955;  of  these  33  escaped 
and  were  recaptured  and  l(i  others  who  escaped  were 
not  recaptured. 

The  following  tabulation  shows  the  distribution  of 
costs  per  man-day : 

CONVICT   COSTS,   DIVISION    I,   TO   SEPTEMBER   30,    1020. 


Mendocino 
camps. 

Humboldt 
camps. 

to.  132 

$0.237 

.170 

.180 

Clothing                                       

.250 

.182 

.952 

1.013 

.165 

.198 

.035 

.040 

Medical                               

.055 

.069 

.052 

.071 

1.811 

1.99C 

2.  830 

3.  0") 

CONVICT   COSTS,    DIVISION   II. 

Food ?0.  78 


.023 

.043 

.148 

.152 

.084 

.035 

.015 

1'reparing  and  issuing  food .052 


Hauling 

Transportation 

Guarding 

Clothing,  medical,  tobacco 

Escapes 

I  ifpivciation  equipment 

('amp  maintenance 


Cost  per  man-day 1.332 

Cost  per  effective  man-day 1.97 

The  term  "  effective  man-day  "  means  days  actually 
worked  and  excludes  Sundays,  bad  weather,  sickness. 
etc. 


Excavation,  including  clearing  and  grubbing  and 
averaging  65  per  cent  solid  rock  totaled  in.  Division  I, 
to  September  30,  1920,  in  Mendocino  County,  939,100 
cubic  yards  at  $0.838,  and  in  Humboldt  County  36,000 
cubic  yards  at  $1.333.  In  Division  II,  500,000  cubic 
yards  "  mostly  solid  rock  "  cost  $0.70. 

The  average  cost  per  mile  of  57.5  miles  of  road  in 
Mendocino  and  Humboldt  Counties  is  approximately 
$15,000  for  he^avy  mountain  road,  18  to  21  feet  wide  for 
35.0  miles  and  12  to  16  feet  wide  for  22.5  miles.  In 
Nevada  and  Sierra  Counties  41  miles  of  about  14-foot 
mountain  road  cost  $12,195  per  mile. 

SPECIFICATIONS. 

The  principal  features  of  the  specifications  in  use 
since  1912  are  described  below: 

Embankments  and  subyrade. — The  specification  pro- 
vides that  the  engineer  may  require  puddling  of  fills 
greater  than  12  inches.  The  1913  to  1918  specifications 
require  that  all  finished  fills  and  cuts  shall  be  watered 
and  rolled  until  the  surface  is  smooth  and  unyielding. 
In  the  1919  and  1920  specifications  these  provisions  are 
incorporated  in  the  specifications  for  subgrade. 

Concrete  pavement. — The  commission  adopted  a 
standard  specification  for  concrete  pavement  in  1912, 
which  has  not  been  extensively  changed  until  the  pres- 
ent year,  except  with  respect  to  the  proportions  of  the 
concrete,  which  in  1917  was  made  1:2:4  instead  of 
1:2|:5,  as  originally  adopted.  All  cement  is  required 
to  conform  to  the  requirements  of  the  American  Society 
for  Testing  Materials. 

With  reference  to  the  fine  aggregate,  the  specification 
permits  6  per  cent  by  weight  of  clay,  silt,  and  other 
material,  passing  a  No.  100  standard  sieve.  There  are 
brief  specifications  regarding  the  quality  and  grading 
of  coarse  aggregate. 

In  the  present  specifications  there  are  no  slump-test 
requirements  for  the  concrete.  The  original  specifica- 
tions provided  for  mixing  until  the  mixture,  was  of 
uniform  texture  and  color.  In  1916  the  requirement 
was  10  turns  of  the  mixer  and  a  minimum  interval  of 
one  minute. 

With  reference  to  surface  finish,  the  1912  specifica- 
tions provided  for  hand  tamping  and  roughening  by 
raking.  The  1913  to  1915  specifications  provided  that 
the  pavement  should  be  finished  by  hand  tamping  until 
the  mortar  flushed  freely  to  the  surface  and  the  1915 
to  1916  specifications,  in  addition,  prescribed  that  the 
finished  surface  should  not  vary  more  than  one-quarter 
inch  when  tested  by  a  straight-edge  5  feet  long.  There 
was  no  requirement  until  1919  for  striking  off  or  float- 
ing or  troweling.  In  1919  the  specifications  required 
the  surface  to  be  finished  by  rolling  and  belting. 

It  is  believed  that  the  California  commission  first 
extensively  used  the  method  of  ponding  in  curing  con- 
crete pavement.  In  1913  the  time  of  wetting  was  in- 


19 


cicased  from  6  to  10  days.  The  1919  specifications  spe- 
cifically provided  for  curing  by  ponding  or  covering  with 
wet  earth.  There  were  no  specifications  for  expansion 
joints,  except  on  one  contract  in  1916  in  Marin  County. 
No  reinforcing  was  required  by  the  specifications 
except  in  1920,  beginning  with  contract  No.  271.  Gen- 
eral instructions  to  division  engineers  No.  421,  issued 
May  1,  1920,  orders  reinforcement  of  concrete  bases 
and  shoulders  by  one-half-inch  square  deformed  steel 
barsv<j4aced  in  the  center  plane  2  inches  from  the  out- 
side edgfexjapped  12  inches  and  butted  at  30-foot  in- 
tervals; trahs^ersej'ernforcement,  three-eighths-inch 
square  deformed  steel  bars  18-inch  centers  hooked  over 
the  longitudinal  bars  and  wired  thereto;  all  steel  is 
to  be  temporarily  supported  by  short  lengths  of  iron 
pipe.  General  instructions  to  division  engineers  No. 
427,  issued  September  15.  1920,  read : 

Voted  that  hereafter  because  of  the  rapidly  increasing  volume 
and  intensity  of  the  traffic  over  the  State  highways,  no  con- 


crete base  be  laid  on  any  State  highway  of  lesser  thickness 
than  ~i  inches  and  all  concrete  bases  are  to  lie  reinforced  with 
steel  as  heretofore  ordered. 

Although  not  explicitly  called  for  in  the  printed 
specifications,  reinforcement  has  from  time  to  time 
been  incorporated  in  the  pavement  and  is  of  various 
types. 

Topeka. — With  reference  to  the  specifications  for  To- 
peka  pavement,  there  have  been  no  changes  since  1912. 
A  consistency  of  bituminous  material  of  from  70  to  90 
as  determined  by  penetration  is  permitted. 

Oil  macadam. — With  reference  to  oil  macadam,  the 
specifications  provide  for  water-bound  macadam  con- 
struction with  surface  treatment  at  the  rate  of  seven- 
eighths  to  If  gallons  per  square  yard,  the  oil  to  be 
not  less  than  85  per  cent  asphalt  with  a  penetration 
of  80. 

Oil  top. — An  analysis  of  the  three-eighths-inch  oil- 
skin top  is  shown  in  Table  1. 


TABLE  1 .—  Analysis  of  Intuminized  aggregates  used  in  oil  top.1 


Location. 

B.  I>.  R. 
Lab.  No. 

Passed 
'.  incb, 
retained 
}  inch. 

Passed 
i  inch, 
retained 
No.  10. 

Passed 
No.  10, 
retained 
No.  20. 

Passed 
No.  29, 
retained 
No.  30. 

Passed 
No.  30, 
retained 
No.  40. 

Passed 
No.  40, 
retained 
No.  50. 

Passed 
No.  50, 
retained 
No.  80. 

Passed 
No.  SO, 
retained 
No.  100. 

Passed 
No.  100, 
retained 
No.  200. 

Passed 
No.  200. 

Per  cent 
Of 
bitumen. 

Total 
per  cent. 

Route. 

C°Unt.V                tiOT. 

12 
2 
I 

2 
2 
•1 
2 
1 
20 
12 
2 
2 
2 
2 
2 
2 
2 
4 
4 

23 
23 
H 
9 
9 
4 
4 
4 

San  I>ie^o.  . 

B 

B 
C 
V. 
E 
A 
A 
A 
B 

B 
A 
C 
H 
H 
H 
H 
C 
C 
C 
C 
I) 
D 
B 
C 
B 
A 
A 
B 
B 
B 

16814 
16815 
16816 
10817 

16S97A 
II1.S97B 
Itkxyx 
1'iSSW 
16900 
16901 
11)902 
1U903 
16904 
16905 
17015 
17016 
17017 
17018 
17029 
17030 
17031 
17032 
17033 
17(134 
17035 
17038 
17037 
17038 
17039 
1704U 
17041 
17W2 

1.6 

7.  a 

12.4 

18.0 
36.0 
38.0 
10.8 
26.4 
2A.9 
12.  S 
12.11 
7.2 
20.8 
32.0 
30.4 
30.  8 
37.2 
17.0 
15.  9 
11.6 
20.  S 
19.2 
29.2 
21.2 
22.0 

y.o 

10.8 
37.2 
3IJ.S 
21.2 
Hi.  ,x 
2.1.  4 
7.6 
9.0 
5.4 

11.  e 
15.8 
12.0 
10.4 
14.0 
14.8 
5.2 
3.2 
14.8 
15.  C 
16.0 
16.0 
14.0 
14.4 
13.2 
13.4 
14.0 
11.6 
16.0 
14.0 
11.6 
12.8 
9.6 
15.6 
12.8 
8.4 
20.0 
12.0 
13.  2 
11.4 
14.0 
7.2 

8.8 
7.2 
5.2 
7.2 
8.8 
9.2 
4.0 
3.0 
11.2 
8.8 
8.8 
7.6 
7.2 
5.6 
10.8 
12.4 
13.4 
9.6 
10.8 
9.0 
11.6 
10.4 
R6 
1H4 
6.0 
4.«, 
12.0 
8.8 
.S.  4 
14.2 
14.0 
9.4 

6.0 
3.6 
2.0 
5.6 
4.8 
4.X 
5.2 
4.2 
6  0 
4.8 
3.6 
3.6 
3.2 
2.4 
6.6 
7.9 
8.2 
5.9 
5.2 
4.7 
7.1 
5.8 
5.0 
5.3 
2.8 
2.4 
5  6 
5.4 
:..  (i 
it 

7.4 

7.2 
3.6 
2.0 
6.4 
4.4 
5.2 
9.4 
8.0 
6.4 
4.x 
4.0 
3.6 
3.6 
2.4 
6.2 
7.2 
11.4 
5.6 
4.9 
4.8 
7.4 
5.8 
5.4 
5.2 
3.7 
2.9 
5.3 
6.1 
5.X 
9.  ti 
9.11 
10.4 

8.1 
3.6 
2.0 
8.8 
5.2 
:,.  (j 
15.2 
15.  0 
8.0 
0.0 
4.4 
4.4 
4.4 
2.8 
5.9 
5.9 
6.2 
5.2 
5.5 
8.0 
7.6 
6  2 
6.8 
6.4 
3.9 
3.  G 
5  8 
7.  v 
7.0 
12.0 
11.4 
14.2 

3.6 
1.6 
1.2 
6.4 
2.0 
2.4 
«.  4 
7.2 
3.6 
2.8 
2.0 
2.0 
2.4 
1.6 
2.1 
2.0 
2.2 
1.9 
2.4 
2.6 
3.0 
.      2.9 
3  2 
2.9 
1.8 
1.5 
2.4 
3.4 
3.5 
4.6 

4.:, 

6.4 

8.0 
4.0 
2.4 
7.2 
6.4 
6.4 
14.8 

lx.  2 
12.0 
8.4 
5.6 
4.8 
7.2 
5.6 
6.1 
5.2 
6.0 
5.5 
7.3 
7.0 

?:? 

11.0 
9.0 
5.4 

4.8 
6.4 
9.  !< 
8.2 
9.0 
9.2 
IK.  2 

14.9 
6.1 
4.9 
19.7 
13.  0 
12.9 
11.0 
14.6 
21.1 
1.x.  4 
10.7 
15.4 
18.4 
12.8 
18.1 
14.2 
12.1 
17.5 
17.7 
15.1 
10.7 
15.9 
22.7 
24.0 
C  3 

x.y 

16  1 

19.8 
16.1 

4.:. 
7.0 
11.9 

11.9 
10.9 
13.9 
17.5 
10.  6 
8.4 
8.4 
x.ti 
9.7 
7.6 
9.3 
9.8 
7.2 
7.2 
9.6 
10.9 
11.  1 
9.4 
6.9 
7.6 
10.0 
6.0 
12.3 
10.4 
13.1 
5.3 
3.  1 
8.6 
8.2 
11.  H 
8.3 
8LT 

100.0 
100.0 
«  100.0 

ioao 

100.0 
100.0 
J  100.0 
100.0 
100.0 
100.  0 
100.0 
100.0 
100.0 
100.0 
100.0 
100.0 
100.0 
100.0 
100.0 

100.0 

100.0 
100.0 
100.0 
100.0 
100.0 
100.0 
100.  U 

100.0 

100.  0 
100.0 
100.0 
100.0 

Orange  . 

San  Luis  Obispo.. 
do  
Santa  Barbara  

do 

4.4 
4.4 

5.2 
6.0 

San  Bernardino... 
Santa  Barbara  
Monterey  

2.0 
3.  A 
2.4 
1.6 
8.0 
4.4 
5.0 
3.6 
7.0 
4.1 

San  Benito  

Santa  Clara  

Santa  Barbara  
do  
do  
do  
Kern 

do  
".Ao  
do  

Los  Angeles  

1.8 
5.1 
6.4 

do  
.   ..do  

7.0 
2>i.  s 
2.  1 
1.5 
42 
3.6 
4.2 
2.8 

..do  

San  Bernardino... 
..  ..do  

do  

LG--'  Angetes  

do  
do  

'  Lab.  Nos.  16898  and  16899  are  modified  Topeka;  Nos.  17040,  17041,  17042  are  Willite. 
1  3.2  per  cent  passed  1  inch,  retained  J  inch:  0.8  per  ci-m  pasM.nl  j  inch,  retained  I  inch. 
3  2. 4  per  cent  passed  J  inch,  retained  .1  inch. 


WORK  DONE. 


ffhe  State  highway  system,  shown  in  Plate  III,  on 
July  1,  1920,  totaled  5,560  miles  of  roads.  Of  this 
mileage,  1,345.4  miles  were  completely  graded  and 
paved,  and  337.1  miles  were  graded  and  not  paved.  In 
addition,  319.4  miles  were  in  process  of  grading  and 
not  to  be  paved,  and  206.8  miles  were  in  process  of  pav- 
ing with  Portland  cement  concrete.  Sixty-six  miles  of 
the  pavement  were  reported  to  be  reinforcedj 


Of  the  paving.  7G5  miles  are  built  with  Portland 
cement  concrete  unsurfaced  (of  which  47.G.miles  are  re- 
inforced), 480.7  miles  with  Portland  cement  concrete 
surfaced  three-eighths  inch  thick  with  bitumen.  ">3.!> 
miles  with  Portland  cement  surfaced  with  14-inch 
Topeka.  4/J  miles  with  Portland  cement  concrete  sur- 
faced with  Willite.  o.l)  mile  with  Portland  cement  con- 
crete surfaced  with  Bitucrete.  li  miles  with  aspliahi- 


20 


concrete  on  macadam,  0.9  mile  with  Willite  on  maca- 
dam, and  33.8  miles  with  oil  macadam.8 

The  summary  of  construction  proposed  and  done,  as 
of  July  1, 1920,  under  each  separate  bond  issue  is  shown 
by  the  following  tabulation : 9 


Bond  issues. 

Miles  pro- 
posed. 

Mileage 
actually 
constructed 

1909                                                               

3.082.3 

1,300 

1915                                                                      

679.  71 

550 

1919                                                                          

1  1,  798.  0 

80 

Total                                *        .                      

5,  560.  Ul 

"  1,  930 

1  One  hundred  and  thirty-four  miles  maintained  under  special  appropriation  roads. 

''  Mileages  shown  under  various  bond  issues  overlap  in  some  instances  due  to  the 
fact  that  separate  contracts  were  let  for  grading  and  paving  covering  the  same  section 
of  road  or  a  portion  thereof. 

In  the  following  tables,  Table  2  shows,  as  of  July  1, 
1920,  the  details  and  costs  of  the  survey,  plan  and 
construction  work  done  and  in  progress,  arranged  by 
State  divisions,  routes,  counties,  and  sections,  and 
Table  3  gives  a  recapitulation.  These  tabulations  are 
from  the  official  records  of  the  commission.  Certain 
projects  there  shown  were  improved  by  contract  and 
others  by  day  labor;  those  done  by  day  labor  are  indi- 
cated by  the  letter  D  in  the  column  headed  "  Contract 
No."  Following  these  tables  are  three  tables  which 
show  in  Table  4  a  resume  of  estimated  costs  and  pay- 
ments made  for  labor  and  materials  on  both  contract 
and  day-labor  road-construction  work  by  divisions  to 
July  1, 1920 ;  in  Table  5,  a  similar  statement  for  contract 
work  only,  and  in  Table  0,  a  similar  statement  for  day- 
labor  work  only. 

In  Appendix  B  is  shown  a  study  in  greater  detail  of 
10  contract  and  10  day-labor  jobs  selected  from  Table  2 
which  show  the  greatest  percentage  of  increase  in  final 
cost  over  preliminary  estimate. 

The  final  total  cost  of  the  construction  work  shown 
as  completed  in  Table  2  is  in  excess  of  the  total  of  the 
engineer's  preliminary  estimates  by  $1,469,122,  or  an 
increase  of  6.24  per  cent.  It  should  be  borne  in  mind 
that  while  this  work  was  in  progress  the  cost  of  both 
labor  and  materials  was  increasing  throughout  the 
United  States  at  the  rate  of  approximately  20  per  cent 
a  year;  in  general  this  increase  of  labor  and  material 
costs  in  California  is  about  the  same  as  in  other  States. 
The  total  cost  of  the  completed  work  done  by  con- 
tract is  $20,314,278;  of  that  done  by  day  labor,  $4,- 
679,529 ;  while  the  totals  of  the  corresponding  prelimi- 
nary estimates  of  cost  are  $19,652,768  and  $3,871,917, 
respectively,  which  results  in  increases  of  3.36  per  cent 
and  20.86  per  cent,  respectively. 

The  total  of  payments  for  labor,  materials,  and  con- 
struction equipment  both  on  completed  projects  and 

»  Much  of  the  work  of  construction  and  surfacing  with  oil  top,  etc., 
done  by  the  State  after  July  1,  1920,  was  classified,  and,  conseo,iH-n  I  ly, 
corresponding  differences  appear  in  the  tables  on  classification. 

»  Figures  do  not  Include  contracts  for  surfacing  only. 


those  still  in  progress  is  $30,936,871,  of  which  $22,209,- 
249  is  for  contract  work  and  $8,727,622  for  day-labor 
work,  which  amounts  are  respectively  71.8  per  cent  and 
28.2  per  cent  of  the  total.  There  are  also  charges  for 
surveying,  engineering,  administration,  etc.,  all  of 
which  are  shown  in  the  recapitulation  of  work-done 
schedule,  Table  3.  Certain  of  these  charges  should  be 
prorated  to  contract  arid  day-labor  work  in  approxi- 
mately the  proportions  given  above  and  the  results 
'added  to  contract  or  day-labor  totals  as  the  case  may 
be.  For  various  reasons  it  is  difficult  to  make  an  exactly 
just  distribution  of  all  these  costs.  For  the  purposes 
of  this  study,  however,  the  equipment  and  construction 
yard  items,  except  engineer  equipment,  have  all  been 
charged  as  construction  costs  against  the  day-labor 
work  and  the  above  mentioned  indirect  charges  have 
been  charged  against  contract  and  day-labor  work  in 
the  proportions  of  71.8  per  cent  and  28.2  per  cent,  re- 
spectively. With  these  additions,  the  total  cost  of  con- 
tract work  is  $25,687,016,  and  of  day-labor  work,  $10,- 
093,542,  and  of  both,  $35,780,558.  Thus  there  is  an  ad- 
dition for  surveys,  engineering,  equipment,  and  ad- 
ministration charges  for  contract  work  of  15.6  per  cent, 
for  day-labor  work  15.7  per  cent,  and  for  both  com- 
bined 15.65  per  cent.  This  does  not  take  into  considera- 
tion the  cost  of  equipment  which  is  still  serviceable. 
Assuming  a  value  for  the  serviceable  equipment  of 
$400,000,  and  eliminating  this  amount,  the  above 
percentage  for  day  labor  becomes  15.88.  The  con- 
tract percentage  becomes  15.85  and  the  combined 
percentage  becomes  15.86.  These  percentages  are  very 
reasonable. 

In  addition  to  the  $35,780,558  expended  from  high- 
way and  similar  funds,  it  is  appropriate  here  to  state 
that  $1,930,631  was  spent  from  the  motor-vehicle  fund 
for  "  improvement,"  which  is  supplementary  and  ad- 
ditional construction. 

Compilations  from  the  work-done  schedule,  Table  2, 
si  low  that  the  average  cost  per  square  yard  of  concrete 
pavement  4  inches  in  thickness  and  including  all  grad- 
ing and  structures,  but  not  indirect  charges  and  over- 
head, was:  For  1913,  $0.987;  for  1914,  $1.233;  for  1915, 
$1.116;  for  1916,  $0.971;  for  1917,  $1.717;  for  1918, 
$2.105 ;  and  for  1919,  $2.065.  From  1913  to  1916,  inclu- 
sive, the  concrete  was  laid  in  the  proportions  of  1 :  2| :  5, 
and  from  1917  to  1919,  inclusive,  1:2:4  was  used.  The 
average  for  all  years  for  1 :  2£  :  5  concrete  is  $1.143,  and 
for  1:2:4,  $1.837.  For  three-eighth-inch  oil  top  the 
cost  per  square  yard  was  for  1915,  $0.0883 ;  for  1916, 
$0.0863;  1917,  $0.0832;  and  for  1919,  $0.0719.  All  of 
these  costs  seem  very  reasonable  when  compared  with 
costs  during  the  same  period  in  other  States. 

The  general  progress  of  pavement  and  grading  con- 
struction is  shown  by  years  on  the  several  maps  of 
Plates  V  to  XII,  inclusive. 


21 


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TABLE  3. — Recapitulation  of  work-done  schedule,  giving  payments  made  for  construction,  labor,  and  materials,  including  engineering,  equipment, 

and  administration  charges. 


Divisions. 

Prelimi- 
nary 
estimate 
of  cost, 
labor,  and 
materials. 

Payments  made. 

Actual 
payments. 

i  ilmr,  and 
materials. 

Engineering. 

Legal. 

Con- 
struc- 
tion 
equip- 
ment. 

Con- 
struc- 
tion 
yards. 

Miscel- 
laneous 
equip- 
ment.1 

Miscel- 
laneous.2 

Total  not 
including 
equip- 
ment. 

Total 
Including 
equip- 
ment. 

Prelimi- 
nary 
surveys. 

Legal 
and 
general. 

Field 
daring 
construc- 
tion. 

Engi- 
neering 
equip- 
ment. 

Overhead. 

During 
construction. 

Divi- 
sion. 

Head- 
quarters. 

Divi- 
sion. 

Head- 
quarters. 

1 

$3,541,403 
2,954,377 
5,724,521 
4,670,553 
4,372,462 
3,853,791 
7,399,220 

$3,303,142 
2,385,465 
5,876,803 
4,475,375 
4,276,459 
3,605,482 
6,280,745 

$229,753 
256,430 
272,  628 
242,530 
166,592 
166,  147 
246,905 

$3,557 
3,415 
5,843 
12,457 
3,834 
2,641 
2,624 

$171,089 

a>s,t>s3 

299,076 
291,677 
187,  923 
164,953 
289,885 

$5,518 
7,161 
6,094 
6,083 
5,434 
5,576 
5,430 

$60,637 
87,421 
75,521 
72,  776 
63,267 
72,068 
52,839 

$21,966 
21,965 
21,966 
21,966 
21,966 
21,966 
21,965 

$28 

$5,487 
5,486 
5,486 
5,487 
5,487 
5,487 
5,487 

$29,878 
28,312 
18,352 
15,590 
23,357 
16,109 
28,224 

$14,652 
6,999 
4,414 
55,777 
4,269 

$43,839 
57,919 
102,663 
53,501 
78,637 
58,535 
74,  739 

$104,042 
124,089 
142,049 
138,000 
128,864 
122,  776 
137,  128 

$3,  899,  701 
3,092,954 
6,669,380 
5,260,295 
4,  854,  374 
4,161,544 
7,037,614 

$3,993,588 
3,193,345 
6,830,903 
5,391,246 
4,966,071 
4,241,764 
7,163,641 

2       

3 

8 
27 
12 
24 
36 

4  

5 

g 

7. 

17,634 

Total. 

32,516,329 

30,  203,  471 

1,580,983 

34,341 

1,613,286 

41,296 

484,529 

153,  760 

135 

38,  407 

159,  822 

103,  745 

469,833 

896,  948 

35,005,862  35,780,568 

i  Miscellaneous  equipment  includes: 

Sand  plants $35,792 

Powder  magazines 10, 655 

Store  accounts , 64, 834 

Furniture  and  fixtures 42, 337 

Auto  equipment 266,895 

Camp  equipment 25, 279 

Laboratory 5,351 

Stable..... 17,712 

Shop 978 

Total ; 469,833 

TABLE  4. — Resume  estimated  costs  and  payments  made  for  labor 
and  materials  on  contract  and  day-labor  road  construction 
work,  by  divisions,  in  California,  to  July  1,  19%0. 


1  Miscellaneous  includes: 

Purchasing  department  expenses $22, 883 

Accounting  department 221, 904 

General 559,940 

Laboratory 39,907 

Repairs  to  War  Department  equipment 52, 314 

896, 948 


TABLE  6. — Resume  estimated  costs  and  payments  made  for  labor 
and  materials  on  day-labor  road  construction  work,  by  divi- 
sions, in  California,  to  July  1,  1920. 


Division. 

Preliminary  estimates  for  projects. 

Payments  made  on  projects. 

Preliminary  estimates  for  projects. 

Payments  made  on  projects. 

Completed. 

In  progress. 

Total. 

Completed. 

Inprogress. 

Total. 

Completed. 

Inprogress. 

Total. 

Completed. 

Inprogress. 

Total. 

1 

$1,  591,  439 
1,546,056 
4,  192,  432 
4,181,064 
3,  822,  755 
2,844,247 
5,346,692 

$1,949,964 
1,408,321 
1,532,089 
489,  491 
549,707 
1,009,544 
2,052,528 

$3,541,403 
2,954,377 
5,  724,  521 
4,670,555 
4,372,462 
3,853,791 
7,399,220 

$1,631,854 
1,  707,  481 
4,  704,  921 
4,357,176 
3,975,522 
3,163,315 
5,  453,  538 

$1,671,288 
677,984 
1,171,882 
118,199 
300,937 
442,  167 
827,207 

$3  303  142     1 

$44,803 
74,  670 
761,116 
638,359 
355,705 
462,  624 
1,534,640 

$1,358,905 
564,343 
926,304 
198,  706 
253,530 
710,  746 
621,691 

$1,403,708 
639,013 
1,687,420 
837,065 
609,235 
1,173,370 
2,156,331 

$56,926 
78,368 
1,054,549 
554,200 
464,302 
609,093 
1,862,091 

$1,198,172 
224,  135 
953,930 
118,199 
44,772 
323,238 
452,247 

$1,255,098 
302,503 
2,  008,  479 
672,  399 
509,074 
932,331 
2,314,338 

2 

2  385  455     2 

3 

5  S76  803     3 

4 

4  475  375     4 

5 

4,276,459     5  

8 

3,605,482     6  

7 

6  280,745     7  

Total.. 

23,524,685 

8,991,644 

32,516,329 

24,993,807 

5,209,664 

30,203,471         Total.. 

3,871,917 

4,  634,  225 

8,  506,  142 

4,  679,  529 

3,314,693 

7,994,222 

NOTE.— Percentage  of  cost  of  completed  projects  over  estimate  equals  6.24. 

TABLE  5. — Resume  estimated  costs  and  payments  made  for  labor 
and  materials  on  contract  road  construction  work,  by  divi- 
sions, in  California,  to  July  1,  1920. 


NOTE. — Percentage  of  cost  of  completed  projects  over  estimate  equals  20.86. 


Division. 

Preliminary  estimates  for  projects. 

Payments  made  on  projects. 

Completed. 

Inprogress. 

Total. 

Completed. 

In  progress. 

Total. 

1 

$1,546,636 
1,471,386 
3,431,316 
3,542,705 
3,  467,  050 
2,381,623 
3,812,052 

$591,059 
843,978 
605,785 
290,785 
296,177 
298,  798 
1,430,837 

$2,137,695 
2,315,364 
4,037,101 
3,  833,  490 
3,  763,  227, 
2,680,421 
5,242,889 

$1,574,928 
1,629,113 
13,650,372 
"3,802,976 
3,511,220 
2,554,222 
3,591,447 

$473,116 
453,849 
217,952 

$2,048,044 
2,  082,  962 
3,868,324 
3,802,976 
3,767,385 
2,673,151 
3,966,407 

2 

3 

4  

3 

256,  165 
118,929 
374,960 

6 

7 

Total.. 

19,652,768 

4,357,419 

24,010,187 

20,314,278 

1,894,971 

22,209,249 

NOTE.— Percentage  of  cost  of  completed  projects  over  estimate  equals  3.36. 


41 


PLATE   V. 


r 

- 


< 
. 


•  :_    •  •- ,   -..• 
"C11JNK  MM' 

CALIFORNIA 

- 

PAVEMENTS  COMPLETED  BY  YEARS 
1913 

LE6CHD 

•••• 

I"'  '   *»E»  . 


V.:^ 


42 


PLATE  VI. 


CALIFORNIA 

SHOWING 

PAVEMENTS  COMPLETED  BY  YEARS 


43 


PLATE   VII. 


OCTU.NK  MAT 

CAIJFORNIA 


SHOWING 

PAVEMENTS  COMPLETED  BY  YEARS 
1915 


44 


PLATE   VIII. 


CALIFORNIA 

PAVEMENTS  COMPLCTE1D  BY  YEARS 
1916 
mm 

•^B     CQMnt1  LDt>VfilN6t»lt 

I        "~1    pfriviouSir  cOMHtTLD 
XNM    6**ocD  oumitt  nit 

~^;^     MtLVIOUSLY  6HAQCO 

ronii<*Hiw>wkv  STUDY 


45 


PLATE    IX. 


OITUNK  MM' 

CALIFORNIA 

SNOWtNb 

PAVEMENTS  COMPLETED  BY  YEARS 
1917 

LffitNO 


46 


PLATE    X. 


& 


® 


rAUI'XWXIA 

PAVEMENTS  COMPLETED  BY  YEARS 
1918 


\ 


\ 


\ 


\ 


\ 


\ 


\ 


K 


"'  N 


47 


PLATE    XI. 


»        ';'-^      &  si 


IHT1JXK  MM" 

CAUFORNIA 

SHOW1H6 

PAVEMENTS  COMPLETED  BY  YEARS 
ISM9 

LC.6UD 


48 


PLATE   XII 


I! 


<  ALII  OKMA 

PAVLMEN1S  COMPETED  BY  YEARS 
I92O 


N  v. 


*    yl   - 

J^--' 


\ 


\ 


\ 


\ 


\ 


FEDERAL  AID. 


There  follows,  in  Table  7,  the  details  of  all  Federal- 
aid  post  road  projects  approved  for  construction  up  to 
November  1,  1920.  Those  projects  completed  are  iden- 


tified on  the  condition  diagrams  of  Plates  LXXIII  to 
LXXXIV,  inclusive,  by  their  corresponding  numbers. 
All  Federal-aid  projects  completed  or  under  construc- 
tion are  also  included  in  the  detail  table  of  "work 
done." 


•RIDGE  ROUTE,"  4  LOS  ANGELES  C.     FEDERAL  AID   PROJECT  NO.  13. 

TABLE  7. — California  Federal  aid  projects,  to  Nov.  1,  1920. 


No. 

Route. 

County. 

Section. 

Length. 

Type. 

Agreement. 

Date 
approved. 

Status, 
percent 
com- 
pleted. 

Total            Federal 
estimates.            aid. 

1 
>2 
'3 
14 

15 
>6 
7 
8 
9 
10 
11 
12 
13 
14 
15 
16 
17 
18 
19 
20 
21 
22 
23 
24 
25 
26 
27 
28 
29 
30 
31 
32 
33 
34 
35 
36 
37 
38 
39 
40 
41 
42 

2 

San  Mateo 

B 

Miles. 

4.24 

5-inch  concrete.  .                            

$70,654.40 

$35,327.20 

Mar.  29,1917 

100 

14 

A 

2.55 

54,723.66 

24,244.56 

Apr.  17,1917 

100 

20 
20 
12 
28 
10 
18 
4 
1 
2 
1 
1 
1 
10 
16 
2 
2 
2 
2 
2 
4 
13 
17 
34 
13 
1 
3 
26 
12 
12 
1 
10 
18 
26 
28 
26 
3 

'D 
»P 

A-B 

D-E-F 
G 
A 
D 
A 
B-C 
G-H 
F 
J 
B 

I 

A 
A-B 
C 
A 
B 
A 
A 
B 
C 
B 
A  B 

15.94 
11.40 
15.20 
10.85 

8.17 

14.89 
17.62 
24.12 
.50 
2.80 
7.73 
7.43 
9.73 
9.36 
5.19 
1.29 
5.23 
9.37 
3.56 
10.73 
12.79 
6.68 
10.74 
21.90 
4.  OS 
17.64 
7.10 
6.61 
13.80 
7.34 
11.99 
7.84 
14.33 
16.84 
14.86 
15.17 

Grading 
Final  c< 

Earth 

210,668.48 
310.9S4.30 
«  273,  492.  03 
78,717.65 
246,668.29 
266,667.85 
<  310,  388.  10 
152,946.92 
285,403.58 
39,471.56 
239,  133.  84 
151,646.96 
117,368.00 
116,708.02 
166,885.40 
42,310.40 
100,070.85 
139,889.31 
85,373.97 
329,598.61 
257,  R35.  86 
137,303.70 
71,828.59 

105,334.24 
155.492.  15 
•121,913.95 
39,358.82 
123,334.14 
133,333.92 
136,404.64 
76,473.46 
142,701.79 
19,735.78 
119,566.92 
75,823.48 
58,684.00 
58,354.01 
83,442.70 
21,155.20 
50,035.42 
69,944.65 
42,686.98 
164,799.30 
128,917.93 
68,651.85 
35,914.29 

June  24,1918 
June    2,  1919 
Jan.     8,  1919 
June    2,  1919 
Aug.  29,1919 
Aug.     1,  1919 
Aug.  29.1919 
Aug.     1,1919 
Sept.  11,1919 
Aug.     1,  1919 
Aug.  11,1919 
Jan.    17,1920 
Aug.  29,1919 
Sept.    2,1919 
Oct.    11,1919 
...do  

100 
89 
80 
40 
100 
60 
100 
100 
99 
100 
82 
59 
100 
100 
89 
100 
100 
100 
100 
51 
90 

(') 

8 

55 

(') 

100 
82 
73 

(') 

§„ 

<•>* 

(?) 

do 

llodoc 

Earth 

Earth 

Humboldt  

Earth  

do 

Del  Norte 

Hnmhnldt- 

4-inch  concrete  

Earth 

Lake 

do 

Los  Angeles 

(See  note  under  summary)  

do... 

do  
Nov.  19,  1919 
Nov.  18,1919 
do  
Dec.   10,1919 
do  
do  

Orange.  . 

Santa  Barbara 

4-inch  concrete  :  

Kern.    . 

4-inch  reinforced  concrete  

Stanislaus 

4-inch  concrete  . 

Placer  ... 

.do  

Earth  

4-inch  concrete  ..      

B 

B 
B-A 
E 
F 
F 
E 
D 
O 
A-B 
E 
D 

3 
4 

Gravel...  .                

37,  136.  70 
422,063.13 
107J154.79 
78,399.04 
224,649.11 

18,  568.  35 
211.  031.  5S 
53,527.39 
39,  199.  52 
112,324.55 

Jan.    17,1920 
Feb.  26,1620 
Feb.   18,1920 
do  
do  

Siskiyou 

4-inch  concrete  

Earth    ...                   

Ran  Hjpgn 

do.                 ...          

do  " 

do   .                      

Concrete    .                         ..      .     .*  

Riverside  

4-inch  reinforced  concrete.  ..I  

356,735.53 

178,367.76     May   12,1920 

Shasta  

Grading  

Imperial  .'  

355,389.46 

177,694.73     May   24,1920 

TAli^mft  „      ,,.,,.,,..- 

do 

isapproved  by  Secretary, 
reject  withdrawn. 

,  $15,827.90;  concrete,  $257,664.13.                 '  Deferred.                                                 'Not  started. 
>st,  $272,809.28.                                                •  Project  statemen  t  approved. 

75712—22- 


50 


TABU;  7. — California  Federal  aid  projects,  to  Nov.  1,  1930 — Continued. 


No. 

Route. 

« 
County. 

Section. 

Length. 

Type. 

Agreement. 

Date 
approved. 

Status, 
per  cent 
com- 
pleted. 

Total 
estimates. 

Federal 
aid. 

43 
44 
M5 
46 
47 
48 
49 
50 
51 
52 
53 
54 
55 
56 
57 
58 
59 
60 
61 
62 
63 

18 
7 
20 
1 
18 
5 
5 
10 
12 
1 
18 
18 
12 
3 
3 
2 
33 
23 
21 
15 
10 

H 
B 

C 
D-E 
E 
B 
A 
F 
C 
D-E-F 
F 
G 
D 
A 
C 
D-E 
A 
H 
A 
B 
B 

ifila. 
1.28 
10.71 
12.78 
17.96 
9.39 
8.09 
5.53 
8.07 
6.67 
17.80 
7.27 
5.69 
4.59 
15.67 
13.60 
14.64 
11.54 
13.41 
.23 
5.95 
12.40 

$38,004.14 
278,  320.  60 

$19,002.07 
139,  160.  30 

May   12,1920 
Sept.    8,1920 
do  

99 
51 

(») 

M 

« 

(') 
45 

(s) 
C) 
2 
C) 
(5) 
14 
C) 
(») 
(|) 

|\ 

if 

') 
«J 

Yolo 

5-6  incn  reinforced  concrete  

Grading                                                  

do 

190,439.45  ;        95,219.72 
139,  146.  15  !        69,  573.  07 

...do.... 

do                                         

do  

do.... 

161,110.26 
441,263.84 

80,  555.  13 
220,  631.  92 

Sept.    8,1920 
do  

do                                                   

do  

do                                   ..         



119,412.48 

59,706.24 

Sept.    8,1920 

Shasta 

..:::::.:::::: 

Butte 

Steel  bridge                           

Sutler 

do                                    

SUMMARY. 


Miles. 

Agreement. 

Remarks^. 

Estimated  cost. 

Federal  aid. 

221.34 

135.26 
(•) 
4.08 

$5,  081,  562.  40 

1,  801,  762.  34 
285,  493.  58 
37,  136.  70 

J2,  504,  041.  40 

900,881.15 
142,  701.  79 
18,568.35 

24.41  miles  complete,  154.81  miles  under  construction,  96.30  miles  reenforeed  concrete,  42.12  miles 
construction  not  started. 
124.52  miles  under  construction,  10.74  miles  grading  not  started. 
One  under  construction,  one  not  started. 
4.08  miles  under  construction. 

Gravel 

»  Project  withdrawn. 


6  Deferred. 


'  Not  started. 


8  One  bridge. 


•  NOTE. — Project  statements  have  been  approved  but  plans,  specifications,  and  estimates  have  not  been  submitted  for  projects  for  which  amount  is  not  shown  under 
agreement. 

1.  Tabulation  includes  only  pavements  for  which  agreements  have  been  executed. 

2.  Type  of  pavement  and  reinforcing  shown  is  based  on  plans  approved  by  Secretary  of  Agriculture. 

3.  Of  total  mileage  of  concrete  9.25  miles  is  6  inches  in  thickness. 
Of  total  mileage  of  concrete  15.47  miles  is  5  inches  in  thickness. 

Of  total  mileage  of  concrete  19.48  miles  includes  rebuilding  and  supplementary  construction  of  old  15-foot  pavement. 

4.  Reinforcing  has  been  added  during  construction  on  following  projects:  9,  12,  26,  39,  41,  48,  49,  27  (1  mile). 

5.  Concrete  on  all  pavements  under  construction  has  been  increased  to  5  inches  reinforced,  effective  about  October  15. 

6.  No.  21:  From  station  0+00  to  96+00,  Section  A,  and  station  30+00  to  124+00,  Section  B,  on  a  concrete  road  15  feet  wide  and  4 
inches  thick,  with  wprn  macadam  shoulders,  was  placed  an  additional  4  inches  of  reinforced  concrete  extending  also  over  the  macadam 
shoulders  to  a  total  width  of  18  feet,  and  from  station  124  to  station  208,  5  inches  of  reinforced  concrete,  20  feet  wide,  was  placed  on  a  road- 
bed which  had  never  been  surfaced.     No.  22:  Reinforced  concrete  pavement  4  inches  thick  and  18  feet  wide  upon  an  old  concrete  pave- 
ment 15  feet  wide  with  macadam  shoulders,  same  as  No.  21.    No.  23:  On  a  concrete  pavement  15  feet  wide  and  4  inches  thick  with  3-foot 
macadam  shoulders,  was  placed  a  reinforced  concrete   pavement  4  inches  thick  and  20  feet  wide  extending  over  the  shoulders  from 
station  167+00  to  station  237+00.     From  station  0+0  to  station  167+00  and  from  station  237+00  to  station  276+00,  was  placed  a  1^-inch 
thick  Topeka  surface  on  top  of  the  old  concrete  pavement  and  shoulders.     No.  24:  To  a  concrete  pavement  4  inches  thick  and  15  feet  wide 
with  earth  shoulders  were  added  concrete  shoulders  2£  feet  wide  and  6  inches  thick,  and  between  station  300+00  and  Station  494+60  an 
asphalt  wearing  surface  15  feet  wide  and  1J  inches  thick  on  top  of  the  old  concrete  pavement. 


51 


BRIDGES  AND  STBUCTTTBES. 

In  the  first  biennial  report  in  1918  is  a  statement 
regarding  bridges  substantially  as  follows : 

In  1912  the  California  Highway  Commission  requested  the 
counties  to  provide  bridges.  As  a  result,  the  greater  part  of 
the  new  bridges  on  the  State  highway  have  been  built  by  the 
counties  or  their  cost  has  been  paid  wholly  or  in  part  by  the 
counties.  The  bridges  represent  a  very  material  contribution 
toward  the  financing  of  the  State  highways,  roughly  estimated 
to  be  at  least  $3,000,000.  The  counties  have  not  reported  the 
cost  of  bridges. 

The  California  Highway  Commission  set  forth  its  general 
policy  in  respect  to  bridges  in  a  vote  adopted  in  September, 
1!HL'.  as  follows: 

"(a)  All  such  structures  are  to  be  designed  by  competent 
engineers  and  the  plans,  specifications,  and  workmanship  are 


necessarily  expensive  structures.  Owing  to  the  rapid  increase 
in  the  weights  of  motor  vehicles,  it  appeared  that  a  20-ton 
tractor  was  none  too  heavy  a  load  for  the  floor  systems  of 
steel  bridges  as  well  as  concrete  bridges.  Also,  the  abrupt 
jump  in  loading  from  100  pounds  per  square  foot  to  85  pounds 
per  square  foot  at  a  span  length  of  150  feet  led  to  inconsist- 
encies in  the  strength  required  in  bridges  of  only  slightly 
different  lengths.  The  concensus  of  opinion  among  prominent 
writers  on  the  design  of  highway  bridges  favors  a  live-load  re- 
quirement whicli  gradually  decreases  as  the  length  of  the  span 
increases.  As  a  result  of  these  considerations  it  has  become 
the  practice  to  design  both  steel  and  concrete  bridges  of  spans 
less  than  50  feet  and  the  floor  systems  of  all  bridges  for  the 
20-ton  tractor  or  150  pounds  per  square  foot,  and  long-span 
bridges  for  a  20-ton  load  assumed  to  occupy  an  area  of  8  by 
15  feet,  together  with  a  uniform  load  of  60  pounds  per  square 
foot  on  the  remaining  floor  area.  These  loadings  are  also  recom- 
mended to  the  counties. 


UNDERPASS.     6  YOLA  A. 


to  be  subject  to  the  inspection  and  approval  of  the  highway 
entniieer  of  the  department  of  engineering. 

"(6)  The  width  of  such  structures,  exclusive  of  sidewalks, 
if  any,  shall  not  be  less  than  21  feet  in  the  clear. 

"(c)  Concrete  bridges  shall  be  designed  to  sustain,  in  addi- 
tion to  the  dead  load,  a  uniform  live  load  of  150  pounds  per 
square  foot  of  roadway  and  the  floor  system  to  carry  a  20-ton 
traction  engine. 

"(d)  Steel  bridges  of  spans  less  than  150  feet  shall  be  de- 
signed to  sustain,  in  addition  to  the  dead  load,  a  uniform  live 
load  of  100  pounds  per  square  foot  of  roadway,  and  the  floor 
system  to  carry  a  15-ton  road  roller ;  for  spans  in  excess  of 
350  feet,  a  uniform  live  load  of  85  pounds  per  square  foot  of 
roadway,  the  floor  system  to  carry  a  15-ton  road  roller  as  in 
the  case  of  spans  less  than  150  feet. 

"(e)  Trestles  shall  be  designed  to  sustain,  in  addition  to  the 
dead  load,  a  uniform  live  load  of  150  pounds  per  square  foot  of 
roadway  and  the  floor  system  to  carry  a  15-ton  road  roller. 

"  Further,  that  the  commission  hereby  declares  itself  in  favor 
of  concrete  structures  whenever  such  structures  are  consistently 
possible  because  of  their  substantial  permanency." 

It  became  evident  that  to  design  long-span  concrete  bridges 
for  a  live  load  of  150  pounds  per  square  foot  required  un- 


The  initial  organization  of  the  California  Highway  Commis- 
sion did  not  include  a  bridge  department,  so  that  when  bridge 
work  began  to  develop  it  fell  to  the  lot  of  the  office  engineer  at 
the  headquarters  office  to  carry  it  on.  This  arrangement  has 
continued  to  date,  and  a  squad  organization  in  the  headquarters 
office  has  developed  as  a  result,  with  an  assistant  engineer  and 
from  two  to  three  draftsmen  almost  constantly  employed  on 
bridge  work. 

Nearly  250  sets  of  plans  for  county  bridges  have  been  checked 
and  over  100  structures  have  been  designed  by  the  highway 
commission  forces.  Seventy  structures,  other  than  short-span 
bridges  and  culverts  built  from  standard  plans,  have  been  built 
or  are  being  constructed  under  the  direct  control  and  super- 
vision of  the  California  Highway  Commission.  In  a  number  of 
cases  the  commission  has  furnished  inspectors  for  bridges  built 
by  the  counties.  The  construction  work  is  carried  on  by  the 
same  division  organizations  which  handle  the  road  work.  The 
commission  has  furnished  plans  and  handled  construction  for 
bridges  paid  for  wholly  by  counties  and  jointly  by  the  State 
and  counties.  It  has  handled  construction  for  the  counties  at 
their  expense  and  from  plans  furnished  by  them.  It  has  fur- 
nished plans  and  specifications  from  which  counties  have  built 
the  bridges.  The  total  cost  of  bridges  constructed  under  the 


52 


PLATE   XIII. 


CONCRETE  BOX  CULVERT      5  ALAMEDA  B 


CONCRETE  CULVERT.     5  ALAMEDA   B. 


53 


PLATE   XIV. 


YOLO  CAUSEWAY. 


THREE-SPAN  CONCRETE  CULVERT.    7  TEHAMA  A. 


54 


direct    supervision    of    the    commission    amounts    to    nearly 
$1,400,000. 

Short  descriptions  of  a  number  of  bridges  of  various  types 
constructed  on  the  State  highways  since  1912  are  given  in  the 
report.  The  prevailing  type  is  the  short-span  reinforced-concrete 
girder. 

On  the  whole,  the  results  of  this  cooperation  (with  the 
county)  have  been  fairly  satisfactory,  but  in  some  instances  a 
disposition  to  build  bridges  according  to  the  practices  prevalent 
before  the  development  of  present-day  traffic  conditions  has 
manifested  itself.  In  a  few  cases  it  has  been  impossible  to 
prevail  upon  those  responsible  to  change  their  ideas  and  build 
for  present-day  traffic,  with  the  result  that  there  are  some  new 
bridges  on  the  line  of  the  State  highways  which  are  not  up  to 
the  usual  standard.  While  these  have  never  been  officially 
taken  over  as  part  of  the  State  highways  and  the  commission 
disclaims  responsibility  for  them,  yet  they  constitute  a  part 
of  the  traffic  route  and  may  easily  become  a  source  of  embar- 
rassing controversies  in  the  future. 

At  present  the  required  uniform  live  load  for  the 
floors  of  steel  bridges,  trusses,  and  girders  less  than  60 
feet  long  and  for  concrete  bridges,  except  earth-filled 
arches,  is  125  pounds  per  square  foot.  For  earth-filled 
arches  150  pounds  per  square  foot  is  assumed.  The 
uniform  live  load  for  girders  and  trusses  is  gradually 
reduced  from  125  to  100  pounds  per  square  foot,  for 
spans  between  60  and  100  feet  long,  and  further  reduced 
from  100  to  70  pounds  for  spans  from  100  to  250  feet 
long. 

The  present  specification  provides  for  the  concen- 
trated load  of  a  20-ton  motor  truck,  and  the  maximum 
stress  from  either  the  uniform  or  concentrated  load  is 
to  be  used.  For  floor  beams  two  trucks  are  used.  The 
unit  stresses  are  increased  15  per  cent  for  this  condition. 

From  a  study  of  design  loading  in  use  by  36  of  the 
State  highway  departments,  it  is  found  that,  while  the 
California  assumptions  are  not  as  high  as  those  used  by 
some  of  the  State  highway  departments,  they  are  from. 
10  to  20  pounds  per  square  foot  above  the  average  for 
uniform  loads  for  spans  less  than  200  feet  long  and  less 
than  the  average  for  spans  over  240  feet  long,  and  about 
as  high  as  any  for  concentrated  loads. 

The  bridges  and  drainage  structures  built  by  the 
State  highway  commission  are  in  general  adequate  and 
well  designed  and  constructed.  Some  of  the  larger 
structures  are  of  noteworthy  elegance  in  design.  The 
Yolo  Causeway,  3.13  miles  in  length,  is  probably  the 
boldest  highway  structure  of  its  kind  in  America.  It 
is  to  be  noted  that  many  streams  in  the  flat  valleys  de- 
mand bridges  of  excessive  length  to  provide  for  flood 
stages.  Consistent  efforts  appear  to  have  been  made  to 
eliminate  dangerous  grade  crossings,  but  much  remains 

to  be  done. 

MAINTENANCE. 

The  books  of  the  commission  show  a  total  expenditure 
for  maintenance  from  the  motor-vehicle  fund  of  $5,780,- 


550.92.  The  items  making  up  this  amount  are  shown 
in  the  reconciliation,  Table  8,  and  by  State  divisions  in 
the  recapitulation,  Table  9,  of  which  Schedule  J  fol- 
lowing is  a  part. 

TABLE  8. — Reconciliation  of  highway  maintenance  schedule, 
California,  with  statement  of  condition  of  funds,  July  1, 
1920. 

Total   direct   charges    to    highway    maintenance 

per  divisional  sheet $4,276,211.77 

Undistributed  charges  including: 

(1)  Injuries  to  employees $15,328.17 

(2)  General  expense—  49,463.84 

(3)  Maintenance  of  plant 17,947.78 

(4)  Repairs  to  motor  vehicle—  146,208.49 

(5)  Repairs  to  other  equipment-    62,732.34 
Undistributed      overhead,      removed 

from    direct    charges    by    analysis 

since  July  3,  1920 24,828.55 

316,  509. 17 


Highway  maintenance,  direct  charges,  per  state- 
ment of  condition —     4,592,720.94 

It  will  be  noted  that  the  total  of  the  so-called  "  direct 
charges  " — exclusive  of  equipment — amounts  to  $4,- 
276,212,  so  that  the  indirect  charges,  equipment  and 
overhead,  amount  to  $1,504,339.  Of  this  latter  amount, 
however,  $613,729  was  spent  for  equipment,  much  of 
which  is  available  for  use  on  future  maintenance.  De- 
ducting this  item,  there  remains  $890,610  gross  indirect 
charges  and  overhead.  It  is  believed  fair  to  assume 
that  there  is  equipment  on  hand  to  the  value  of  $500,000 
and  that  the  direct  charge  should  be  increased  by  the 
difference  of  $113,729.  There  is  a  stores  account  of 
$26,419  and  a  county  expense  item  of  $21,893,  neither 
of  which  should  be  charged  against  maintenance  work 
already  done.  Deducting  the  total  of  these  two  items 
or  $48,312  from  the  gross  indirect  charges  and  over- 
head, there  results  $842,298,  or  an  addition  of  about 
19.2  per  cent  of  the  direct  charges  and  depreciation  on 
equipment.  The  overhead  is  12.5  per  cent.  This  per- 
centage seems  high  for  maintenance  work  and  indicates 
the  advisability  of  study  to  secure  a  more  economical 
handling  of  this  branch  of  the  commission's  activities. 
The  direct  charges,  not  including  depreciated  equip- 
ment, are :  General  maintenance  proper,  $2,470,836 ;  im- 
provement, $1,577,691  (which  is  a  construction  item)  ; 
and  reconstruction,  $227,685.  The  true  corresponding 
direct  maintenance  costs  are  the  sum  of  the  general 
maintenance  and  these  reconstruction  charges,  or  $2,- 
698,521,  and  to  this  must  be  added  a  corresponding 
percentage  of  depreciated  equipment  amounting  to 
$71,763,  also  19.2  per  cent  for  indirect  charges  and 
overhead.  In  like  manner  the  improvement  cost  of 
$1,577,691  must  be  increased  by  $41,966  and  by  19.2  per 
cent,  which  would  bring  it  up  to  a  total  of  $1,930,631. 


55 


PATCHING  CONCRETE.     7  SOLANO  E. 


FENCED   REPAIR  JOB.    4  KERN  C. 


56 


TABLE  9.— Recapitulation  of  maintenance  costs. 


Division. 

Direct  charges. 

Indirect  charges. 

Grand 
total. 

Total. 

General. 

Improve- 
ments. 

Recon- 
struc- 
tion. 

Total. 

Oiling 
plants. 

Mainten- 
ance 
yards. 

Mainten- 
ance 
equip- 
ment.1 

Auto 
equip- 
ment. 

Camp 
equip- 
ment. 

Shop 
equip- 
ment. 

County 
expense. 

Miscel- 
laneous.' 

Miscel- 
laneous 
over- 
head." 

S445,611 
411,392 
984,459 
718,989 
410,051 
369,001 
936,  709 

$222,  810 
135,  864 
672,  298 
455,935 
283,316 
257,943 
462,  670 

$222,301 
275,486 
237,959 
248,035 
145,440 
83,949 
364,521 

$500 
42 
74,202 
15,019 
1,295 
27,109 
109,518 

$159,726 
127,206 
311,999 
253,735 
153,078 
208,508 
290,087 

$7,368 
4,250 
20,921 
28,267 
6,031 
28,638 
34,358 

$25,528 
18,  195 
51,662 
39,213 
15,688 
20,367 
41,738 

$12,601 
10,008 
43,244 
32,927 
18,750 
41,295 
35,  158 

$585 
1,210 
1,370 
184 
2,275 
125 
1,764 

$37 
29 
8,605 
2,328 
320 
1,502 
3,262 

$41,766 
41,668 
53,507 
45,697 
41,908 
42,696 
50,858 

$71,841 
48,  514 
103,268 
86,684 
66,154 
57,286 
116,  871 

$605,337 
538,  598 
1,296,458 
972,  724 
563,129 
577,509 
1,  226,  796 

$3,332 
18,891 
7,073 
1,952 
16,599 
6,078 

3        

$10,  531 
11,362 

4        

g 

7  

Total.. 

4,276,212 

2,470,836 

1,577,691 

227,685 

1,504,339 

53,925 

129,833 

212,391 

193,983 

7,513 

Hi,  OSS 

21,893 

318,  100 

550,618 

5,780,551 

1  Maintenance  equipment  includes  maintenance  construction  equipment,  $210,349;  engineering  equipment,  $89;  furniture  and  fixtures,  $346;  stable  equipment,  $638; 
and  patrolmen  houses,  $929. 

1  Miscellaneous  includes  stores  accounts,  $28,419;  miscellaneous  charges,  $291,681;  which  is  made  up  of  undistributed  charges  as  follows:  Injuries  to  employees,  $15,328; 
general  exoense,  $49,484;  maintenance  of  plants,  $17,948;  repairs  to  motor  vehicles,  $146,208;  and  repairs  to  other  equipment,  $62,732. 

»  Miscellaneous  overhead  includes  $525,789  administrative  expenses;  for  salaries,  office  supplies,  traveling  expenses,  and  general  expenses  (see  Schedule  J),  and  undistrib- 
uted charges  removed  by  analysis  since  July  1, 1920,  $24,829. 

TABLE  9. — Schedule  J — Details  of  administrative  expense,  motor-vehicle  fund,  maintenance  schedule,  by  departments,  for  headquarters  and 

divisions. 


Total  head- 
quarters 
and 
divisions. 

Head- 
quarters. 

All 
divisions. 

Division 
I. 

Division 
II. 

Division 
III. 

Division 
IV. 

Division 
V. 

Division 
VI. 

Division 
VII. 

Engineering  department: 
Salaries  

$199,  932.  77 

$42,159.08 

$157,773.71 

$20,315.99 

$8,556.49 

$37,901.14 

$27,663.06 

$16,439.86 

$12,899.19 

$33,997.98 

Office  supplies  

11,204.34 

6,  104.  48 

5,099.86 

1,231.27 

531.46 

434.82 

1,005.93 

459.  61 

317.85 

1,  118.  92 

11  681.52 

1,  907.  65 

9,773.87 

2,  585.  67 

549.18 

869.62 

1,341.24 

707.09 

1,138.94 

2,  582.  13 

1.3M.03 

1,364.03 

205.  22 

17.72 

167.  65 

106.07 

264.87 

602.50 

Hotel 

1  791.92 

1.  791.  92 

492.50 

70.86 

217.40 

335.31 

424.25 

79.46 

172.  14 

Stable  

1,317.38 

1,317.38 

246.26 

141.71 

144.94 

223.55 

282.83 

105.95 

172.  14 

Maintenance  

1,  101.  48 

1,  101.  48 

123.13 

53.14 

217.  40 

279.42 

176.  78 

79.47 

172.  14 

Total  

228,393.44 

50,  171.  19 

178,222.25 

25,  200.  04 

9,920.56 

39,  785.  32 

31,016.16 

18,596.49 

14,  885.  73 

38,  817.  95 

Legal  department: 

9,919.79 

9.919.79 

Fees                                            .         ... 

763.05 

763.05 

1  716.88 

1,  716.  88 

Total  

12,399.72 

12,399.72 

7  821.36 

7,  821.  36 

81  013.47 

26  707.  10 

54,306.37 

6,607.83 

1,913.25 

13,914.00 

ii,009.34 

6  434.  53 

4  529.28 

9,898.14 

General  expense: 

37,957.38 

11,255.13 

28,702.25 

1,641.69 

956.63 

5,  072.  80 

6,091.46 

1  909.15 

1  562.73 

9,  467.  79 

24,389.19 

17,359.62 

7,029.57 

820.85 

513.  74 

1,376.90 

726.50 

671.73 

423.79 

2  496.06 

14,  166.  95 

3,052.24 

11,114.71 

1,477.52 

194.87 

1,594.31 

1.  620.  66 

1,202.05 

635.69 

4,  389.  61 

10  299.98 

4,  196.  83 

6,  103.  15 

779.  81 

230.30 

797.  16 

894.  16 

601.04 

476.77 

2  323.91 

48,277.10 

9,  538.  25 

38,738.85 

4,  227.  37 

3,968.22 

9,203.55 

3,  464.  87 

3  818.29 

3,  814.  13 

10  242.42 

8  584.  43 

8,584.43 

40  658.30 

27  851.68 

12,806.62 

287.29 

17.71 

724.68 

1,061.81 

2  121.27 

158.92 

8  434.94 

1  144.59 

1  144.59 

Total                                      

185  477.92 

82  982.77 

102  495.  15 

9,  234.  53 

5,881.47 

18,769.40 

13  859.46 

10  323.  53 

7  072.03 

37  354.73 

Laboratory: 

8,775.19 

8,775.19 

1,144.60 

1,144.60 

763.05 

763.05 

Total  ,  

10,682.84 

10,  682.  84 

Grand  total  

525,788.75 

190,764.98 

335  023.77 

41,  042.  40 

17,715.28 

72,  468.  72 

55,884.96 

35  354.55 

26  487.04 

86  070.82 

"  General  maintenance,"  in  the  words  of  the  State 
highway  commission,  covers  "  maintenance  in  present 
condition  and 'making  of  minor  repairs";  "Recon- 
struction "  covers  "  rebuilding  with  original  type  over 
large  areas,"  and  "  Improvement "  covers  "  new  or  ad- 
ditional construction  or  betterment,  and  including 
changes  in  line,  grade,  or  type  of  construction." 


Table  10  shows  total  consolidated  maintenance  ex- 
penditures by  types ;  following  this  are  Tables  11  to  17, 
inclusive,  which  show  the  expenditures  for  mainte- 
nance of  the  various  types  by  divisions.  None  of  these 
tables,  however,  shows  any  of  the  indirect  or  overhead 
charges,  and  in  each  case  approximately  22.12  per  cent 
must  be  added  to  obtain  final  costs. 


57 


The  records  on  file  in  the  office  of  the  State  highway 
commission  give  maintenance  costs  in  considerable  de- 
tail, and  it  is  possible  to  get  total  and  yearly  mainte- 
nance unit  costs  for  the  different  types.  For  example, 
the  average  maintenance  cost  of  15-foot  by  4-inch  con- 
crete base,  not  oiled,  has  been  $0.006  per  square  yard 
per  year  and  for  15-foot  by  4-inch  concrete  base  with 
f-inch  oil  top,  $0.009  per  square  yard  per  year.  In 
special  cases  the  maintenance  has  exceeded  these  fig- 
ures. These  costs  are  for  the  items  mentioned  alone 
and  do  not  include  other  items,  such  as  shoulders, 
ditches,  roadsides,  etc. 

There  are  also  given,  in  Tables  18  and  19,  detailed 
costs  of  maintenance  and  improvement  of  32.45  miles 
of  oil  macadam  pavement  as  well  as  the  first  cost  of 
construction  of  this  mileage. 

TABLE  10. — Total  motor-vehicle  fund  expenditure,  highway  main- 
tenance schedule;  all  divisions  consolidated  by  types. 


TABLE  13. — Total  oil  macadam  maintenance  charges,  by  divisions. 


Division. 

Uiles. 

Total. 

General. 

Improve- 
ment. 

Recon- 
struction. 

I... 

7.73 

$16,577.11 

$15  599.41 

2  

3  

96  10 

270  044  02 

170  662  83 

46  468.77 

$52  912  42 

4  

5  42 

15  806  58 

14*162  43 

*401  89 

l'  ''1  '  "•• 

5  

12.67 

43,535.04 

38*863  18 

4  671  86 

8  

10.00 

4  532.28 

4  ij<i>,  28 

'433  32 

7  

55.11 

56  402  20 

48  961  01 

Total... 

187.03 

406.897.23 

292  347.  f« 

S3  039  sn 

fii  sna  01 

TABLE  14. — Total  concrete  base  maintenance  charges,   by 
divisions. 


Types. 

Miles. 

Total. 

General 
mainte- 
nance. 

Improve- 
ment. 

Recon- 
struction. 

Earth  and  gravel  
Oiled  earth  ... 

1.524.17 
23.72 

$1,302,659.  00 
29  732  75 

$764,896.64 
19  469.56 

$533,493.22 
10  172  08 

$4,269.14 
91  11 

187.03 

406  897.23 

292  347  82 

53  039  50 

61  509  91 

Plank  trestle  

.44 

386.63 

'386.63 

Pile  trestle  

1.24 

3,039.64 

3,039.64 

Oiled  plank  road  

20.80 

86,308.77 

16  224.01 

70  084,76 

Asphalt  on  plank  

.43 

461.02 

461.02 

Topeka  on  plank  
Topeka  on  macadam. 
Concrete  base  

.57 
16.18 

868.66 

4,070.21 
56,618.18 
1  044  254.  12 

983.43 
23,148.42 
619  503.33 

1,416.63 
31,030.94 
386  735.69 

1,670.15 
2,438.82 
38  015.  10 

Oiled  concrete  

557.71 

1  010  205.63 

599  752.22 

298  400  35 

112  053.06 

Topeka  on  concrete.  . 
Asphalt  on  concrete.  . 
Willite  on  concrete.  .  . 

67.10 
8.08 
1.00 

278,327.89 
20,767.12 
1,283.05 

87,891.49 
15,893.29 
764.81 

187,384.05 
3,  138.  62 
518.24 

3,052.35 
1,735.21 

Bitucrete  on  concrete. 
Asphalt  concrete  

.89 
15.06 

1,332.12 
29,  858.  41 

265.22 
25,807.84 

219.  73 
2,054.52 

847.17 
2,006.05 

Total  .. 

3  293  00 

4  276  211  77 

2  470  835  37 

1  577  688.33 

227  688.07 

Division. 

Miles. 

Total. 

General. 

i 

Improve- 
ment. 

Recon- 
struction. 

1.... 

4.32 
49.68 
258.11 
110.  16 
149.11 
118.86 
178.42 

$48,  141.  53 
5,796.89 
176,897.13 
222.617.77 
150,689.35 
111,252.13 
328,859.32 

$10,740.01  '• 
5,796.89 
139,495.31 
158,864.41 
93,237.21 
89,866.43 
121,503.07 

$37,401.52 

2  

3.  ..     . 

31,507.95 
59.874.01 
56,945.09 
18,889.73 
182,117.39 

$5,893.87 
3,879.35 
507.05 
2,495.97 
25,238.86 

4. 

5. 

6  

7  

Total  

868.66 

1,044,254.12 

619,503.33 

386,735.69        38,015.10 

TABLE  15. — Total  oiled  concrete  maintenance  charges,  by 
divisions. 


Division. 

Miles. 

Total. 

General. 

Improve- 
ment. 

Recon- 
struction. 

1.... 

4.83 

$7,513.57 

$4,  124.  26 

$3  389.31 

2  

3.23 

805.12 

805.12 

3. 

105.90 

180  652  79 

90  504  15 

78  765  71 

$11  382.93 

4. 

68.76 

143  211.78 

97  726  53 

41  184  78 

i  'it«l  -!7 

5. 

68.09 

123  710  45 

72  106  61 

50*907  23 

•  '  -    i  • 

6.... 

136.95 

198,907.06 

119*  335.  75 

56  641  25 

22  930.06 

7  

169.95 

355,404.86 

215  149  80 

67  512  07 

72  742  99 

Total. 

557.71 

1  010  205.63 

599  752.22 

298  400  35 

112  053  06 

TABLE  11. — Total  earth  and  general  maintenance  charges,  by 

divisions. 


TABLE  16. — Total  Topeka-on-concrete  maintenance  charges,  by 

divisions. 


Miles. 

Total. 

General. 

Improve- 
ment. 

Recon- 
struction. 

!             1 

Division.            Miles.           Total. 

General. 

Improve- 
ment. 

Recon-                Division, 
struction. 

I....                              178.10      $373,378.52 

$192,347.81 
129,260.85 
253,065.32 
91,511.18 
26,  190.  44 
32,313.62 
40,207.42 

$180,530.71 
275,486.94 
22,  130.  75 
44,413.19 
10,931.63 

1... 

$500.00     2... 

2  367.67         404,789.79 

42.00     3 

6.09 
32.37 
6.13 
6.38 
16.13 

$63,547.56 
123,246.06 
14,343.20 
15,362.86 
61,828.21 

$7,  161.  54 
54,264.44 
2,531.11 
7,377.84 
16,  556.  56 

$56,005.11 
67,600.57 
11,812.09 
7,985.02 
43,981.26 

$380.91 
1,381.05 

3  656.73        275,196.07 

4 

4  61.25         135,924.37 

5 

5  25.49          37,122.07 

6 

fi  122.79          33,996.97 

1  683  35     7 

1,290.39 

7                                       112  14           42  251  21 

2,043.79 

67.10 

278,327.89 

87,£91.49 

187,384.05 

3,052.35 

Total...      .    1.524.17     1.302.659.00 

764.896.64 

533.  493.  22 

4.269.  14 

TABLE  12. — Total  oiled  earth  maintenance  charges,  by  divisions. 


TABLE  17. — Total  asphaltio  concrete  maintenance  charges,  by 

divisions. 


Division. 

Miles. 

Total. 

General. 

Improve- 
ment. 

stSon.               Di™°n' 

Miles. 

Total. 

General. 

Improve- 
ment. 

Recon- 
struction. 

1  

1-  . 

2  

...     2.  . 

3  

4.00 

$5,954.13 

$5,954.13 

3. 

2  33 

$7  636  17 

$4  007  84 

$1  665.16 

$1  983  17 

4  

4. 

18 

796  58 

'364  34 

>•'  V. 

42  88 

5  

3.86 

18,828.84 

8,565.65 

$10  172.08 

$91.  11     5. 

12  55 

21  435  66 

21  435  66 

6  

15.86 

4,949.78 

4,949.78 

7  

7 

Total  

23.72 

29,732.75 

19  469.56 

10  172.08 

91  11                Total 

15  06 

29  868.41 

25  807  84 

2  054.  52 

2  006  05 

58 


TABLE  18. — Detailed  cost  of  maintenance  and  improvement  of  St. 45  miles  of  oil-macadam  pavement,  distributed  by  items. 


County,  route,  section. 

Number  of 
square 
yard-years. 

Total. 

PB. 

BS. 

S. 

CD. 

GR. 

G. 

BS. 

T. 

GE. 

Pit. 

Mendocino  1  C 

402  500 

115  599 

1642 

$11  322 

$324 

$1,659 

$268 

$1,330 

$16 

$38 

Eldorado  11  B 

179*200 

'Z  <XP~ 

342 

514 

521 

189 

342 

$559 

163 

$276 

Yuha  3  B 

555  000 

11  074 

1  878 

1  741 

2  545 

1  994 

1,218 

268 

199 

43 

1,185 

Madera  *4  B 

579  000 

4*099 

508 

1  466 

1  069 

386 

102 

29 

115 

100 

325 

Total  

1,715,700 

33,679 

3,370 

15,043 

4.459 

4,228 

1,930 

856 

1,807 

16 

181 

1,786 

Cents  per  square  yard-year  — 

1.96 

.19 

.88 

.26 

.25 

.11 

.05 

.11 

.01 

.10 

402  500 

978 

978 

Eldorado  11   B 

179  200 

Yuba  3  B 

555  000 

12  961 

4  016 

6  914 

456 

500 

212 

790 

58 

15 

Madera,  4,  B  

579,000 

433 

168 

260 

3 

1 

1 

Total  

1,  715,  700 

14,372 

4,184 

8,152 

<M 

501 

212 

790 

58 

16 

84 

24 

.48 

.03 

.03 

.01 

.05 

Symbols:  PB,  pavement  base;  PS,  pavement  surface;  S,  shoulders;  CD,  culverts  and  drains;  GR,  guardrail;  G,  grading;  RS,  roadside;  T,  trees;  GE,  general  expense; 
Pat.,  patrolmen. 

TABLE  19.— Cost  of  32.4!>  miles  of  oil-macadam  pavement  built  by  the  State  highway  commission. 


County,  route, 
section. 

Miles. 

Width 
(feet). 

Area 
(square 
yards). 

Construc- 
tion 
cost. 

Cost  per 
square 
yard. 

Date 
com- 
pleted. 

Years 
under 
mainte- 
nance. 

Square- 
yard- 
years. 

Mainte- 
nance per 
square- 
vard-vear 
(cents). 

Improve- 
ment per 
square 
yard-year 
(cents). 

Construction  costs  and  costs  of  mainte- 
nance and  improvements  per  square 
yard  per  year. 

Mendocino,  1,  C  — 

Eldorado.  11,  B... 
Yuba,  3,  B  

7.73 

5.27 
9.45 

15 

12 
15 

68,024 

37,  101 
83,160 

$84,167 

102,020 
72,644 

$1.237 

2.750 
.875 

June  23,1914 

July  31,1915 
Sept.  24,  1913 

5.92 

4.83 

8.67 

402,500 

179,200 
555,000 

3.9 

1.6 
2.0 

0.9 

.0 
2.3 

Madera,  4,  b  

10.00 

15 

88,000 

73,832 

.839 

Oct.    29,1913 

6.58 

579,000 

.7 

.1 

32  45 

276  285 

332  663 

1.206 

1,715,700 

1.98 

0.84 

TOTAL  COSTS   PER  YEAR  AND  COSTS  IN  CENTS  PER  SQUARE  YARD-YEAR,  RESPECTIVELY. 


1914 

1915 

1916 

1917 

1918                     1919 

1920' 

Totals  per 
square  yard. 

Cost  of  improvements. 
Totals  and  avcr- 

Cents. 

Cents. 

Cents. 

Cents. 

Cents. 

Cents. 

$978 

Cents. 
1.4 

$978 

Cents. 

Eldorado  11  B 

Yuba  3  B 

$1,015 

1.2 

$3,356 

4.0 

$2,889 
433 

3.5 
.5 

$5  701 

6.9 

12,9(11 
433 

15.  6 
.  5 

Madera  4  B 

1  015 

3  356 

3  322 

5  701 

978 

14,372 

5.  2 

Cost  of  general  mainte- 
nance. 

Total 

Mendocino,  1,  C 

2,937 

256 
864 
639 

4.3 

.7 
1.0 
.7 

3,670 

119 
1,068 
1,153 

5.4 

.03 
1.3 
1.3 

$1,301         1.9 

293          .8 
890        1.1 
222          .3 

$2,234 

509 
985 
750 

3.  3       4,  829 

1.4       1,325 
1.  2       3,  689 
.9          804 

7.1 

3.6 
4.4 
.9 

627 

405 
2,611 
417 

.9 

1.1 
3.1 

.5 

15,599 

2,  907 
11,074 
4,099 

22.9 

7.9 
13.3 
4.7 

Eldorado,  11,  B 

Yuba  3  B 

967 

113 

1.2 

0.1 

Madera 

1  080 

4,696 

6,010 



2,706    

4,478 

10,647 



-4,060 

33,679 

,2.2 

'  One-half  year  only. 


PRESENT  CONDITION  OF  CONSTRUCTED  ROADS 


To  determine  the  present  condition  of  the  Portland 
cement  concrete  State  highways  and  of  pavement  of 
other  type  incidentally  laid  field  inspections  were  made 
of  1,734  miles  of  paved  roads.  These  inspections  were 
in  such  detail  that  each  one-tenth  mile  of  concrete  could 
be  classified;  7,500  photographs  were  taken  and  638 
sample  concrete  cores  were  drilled  at  intervals  from  the 
pavement.  (In  addition  to  the  pavement  inspected 
about  350  miles  of  graded  State  highways  without  pav- 
ing were  also  inspected,  with  special  reference  to  the 
features  of  grade  and  alignment.)  All  inspections 
were  so  organized  that  a  thorough  initial  examination. 


with  photographs,  was  first  made,  directed  by  such 
supervision  as  was  found  neressary.  Then  as  fast  as 
the  data  from  those  inspections  developed,  supple- 
mentary and  more  intensive  studies  were  organized  to 
cover  portions  of  the  pavement  which  presented  un- 
usual features  or  defects.  Finally,  a  complete  field  in- 
spection of  the  entire  pavement,  with  photographic 
record  and  field  notes  in  hand,  was  made  as  a  check 
prior  to  the  compilation  of  final  figures. 

All  inspection  field  work  and  photographs  were  made 
with  two  main  purposes  in  view:  First,  to  determine 
the  present  condition  of  the  highways  with  respect  to 


59 


serviceability  or  usefulness  to  traffic,  and,  second,  to 
determine  the  present  physical  condition  of  the  pave- 
ment itself  and  the  quality  of  the  work  done. 

CLASSIFICATION. 

To  describe  systematically  the  present  physical  con- 
el  it  ion  of  the  concrete  pavements,  whether  oiled  or  not, 
they  were  classified  into  six  classes,  designated  by  the 
letters  A  to  F.  It  is  particularly  emphasized  that  with 
the  exception  of  those  sections  of  the  pavement  which 
contain  failed  portions,  all  of  which  are  classed  F,  and 
also  with  some  additional  minor  exceptions  in  the 
classes  E  and  F,  the  classification  by  letter  has  no  nec- 
essary relation  to  the  present  serviceability  of  the  high- 
ways. Classes  A  to  C,  inclusive,  are  for  practical  pur- 
poses at  present  equally  serviceable  to  traffic.  Class  D 
seldom  presents  bad  travel  conditions ;  class  E  includes 
some  pavement  which  is  rough  to  travel,  and  class  F 
in  several  instances  presented  pavement  very  difficult  to 
travel.  It  is  to  be  noted,  however,  that  where"  pave- 
ment is  impaired  to  such  an  extent  that  repairs  become 
necessary  which  result  in  fencing  of  considerable  por- 
tions of  the  road  against  travel,  then  physical  condi- 
tion of  the  pavement  becomes  an  impediment.  Classes 
D,  E,  and  F  frequently  require  such  repairs  and 
reconstruction.  The  following  definitions  of  the  de- 
scriptive classes  for  cement  concrete  pavement  were 
adopted : 

A.  A  pavement  in  which  the  plainly  visible  trans- 

verse cracks  do  not  exceed  the  normal  number 
expected  of  a  pavement  constructed  without 
expansion  joints,  and  which  has  no  plainly  visi- 
ble longitudinal  cracks. 

B.  A  pavement  having  more  than  the  normal  num- 

ber of  plainly  visible  transverse  cracks,  or  with 
some  "  crowfoot "  cracks  at  the  edges,  or  with 
both. 

C.  A  pavement  similar  to  classes  A  and  B  and  with 

one  plainly  visible  longitudinal  crack,  or  with  a 
considerable  number  of  "  crowfoot "  cracks. 

D.  A  pavement  so  cracked  transversely  and  longi- 

tudinally that  numerous  slabs  are  formed  of  less 
area  than  in  class  C,  but  that  do  not  average  less 
than  about  50  square  feet. 

E.  A  pavement  in  which  the  plainly  visible  trans- 

verse and  longitudinal  cracks  are  so  numerous 
that  it  is  broken  into  slabs  having  areas  less 
than  about  50  square  feet,  but  in  which  no  gen- 
eral disintegration  appears. 

F.  A  pavement  bady  broken  and  with  disintegrated 

portions. 


The  engineering  inspection  in  the  field  determined  by 
tenths  of  a  mile,  as  measured  by  automobile  odometer, 
to  which  of  the  above  classes  all  concrete  pavement  be- 
longed. This  classification  operation  disregarded  the 
presence  or  condition  of  the  three-eighths-inch  asphaltic 
oil  surfacing,  but  sometimes  where  such  oil  surfacing 
was  present,  or  particularly  where  it  had  been  recently 
applied  or  renewed,  the  observation  of  cracks  and  other 
defects  was  made  difficult,  and  for  this  reason  26.2 
miles  of  concrete  pavement  with  newly  laid  three- 
eighths-inch  oil  top  was  not  classified,  nor  for  similar 
reasons  50.39  miles  of  concrete  "  pavement-base  "  with 
H-inch  Topeka  or  similar  top.  On  sections  with 
three-eighths-inch  oil  top  an  error  in  classification  may 
be  assumed  to  be  one  which  tends  to  raise  rather  than 
lower  the  class.  This  is  particularly  true  as  between 
classes  A  to  C,  inclusive. 

The  record  of  this  field  inspection  for  classification 
is  presented  with  explanatory  legends  in  the  "  condition 
diagrams,"  which  constitute  Plates  LXXIII  to 
LXXXIV,  inclusive,  in  Appendix  H,  and  which  are 
arranged  according  to  the  standard  numbering  system 
of  the  State  Highway  Commission  for  route,  county,  and 
section.  The  horizontal  scale  of  these  diagrams  is  two 
miles  to  the  unit  and  the  classification  of  the  pavement 
by  tenths  of  miles  is  schematically  indicated  by  nega- 
tive ordinates  to  an  arbitrary  vertical  scale. 

With  reference  to  the  descriptive  classification  of 
the  4-inch  concrete  pavement  itself,  it  is  to  be  noted 
that  cracking  is  mainly  the  basis  of  measurement  of 
classification  and  that  practically  all  the  pavement 
laid  by  the  California  State  Highway  Commission 
was  without  transverse  joints.  The  classification  re- 
quired judgment  in  many  instances  to  evaluate  mixed 
classification  within  a  tenth  of  a  mile  and  also  to 
evaluate  unusual  combinations  of  defects.  It  is  not 
mathematically  rigid  and  is  subject  to  some  small  error 
of  position  in  the  sections  due  to  differences  in  odome- 
ter calibrations.  In  the  main  it  is  correct  in  detail, 
and  the  totals  are  probably  subject  to  very  little  error. 
For  all  other  than  concrete  pavement  such  classifica- 
tion as  excellent,  good,  fair,  etc.,  only  was  made. 

The  results  of  the  concrete  pavement  classification  are 
summarized  in  Tables  20  and  21  and  in  Plates  XV  and 
XVI.  In  addition  Table  22  presents  a  classification 
of  concrete  pavement  and  subgrade  soil  and  Table  23 
shows  the  mileage  of  all  pavement  and  other  roads  con- 
structed in  the  State  highway  system.  There  are  also 
shown  in  Plates  XVII  to  XXII,  inclusive,  a  series  of 
photographs  of  each  class  of  concrete  pavement  above 
described. 


60 


PLATE   XV. 


DIAGRAM 

SHOWING 

PRESENT  CLASSIFICATION  OF  PAVEMENT 
LAID  EACH  YEAR  FROM  1913  TO  I9EO 


UJ 

o 


or 
ui 

Q- 


61 


PLATE   XVI. 


p 

45 
40 
35 
30 

25 

H 

a 

0 

cc. 

LJ 

c 

20 
15 
10 
5 
0 

DIAGRAM 

SHOWING 
ERCENTAGES  OF  CONCRETE  PAVEMENT  CLASSES,  IN  SURFACED  AND  UNSUR  FACED  PAVEMENT 

( 

N  L 

i 
\ 
\ 

•  SURFACED 
>UNSURFACED 

\ 

\ 
\ 
\ 
\ 
\ 

i\ 

\ 
\ 
\ 
\ 
\      \ 

< 

1 
1 

1 

i 
i 

\      \ 
\      \ 
\     \ 
\     \ 

•    \    \ 
\    i 

\    \ 
\   \ 
\  \ 
\  \ 

\\ 
\  \ 

1 

\ 

\\ 

V,, 

\       « 

k 

x\ 

\ 

\ 

\ 
\ 

/ 

\ 

\ 

i 

w 

A                        B                       C                       D                       E                       F 

CLASSES 

62 


TABLE  20. — Showing  the  classified  condition  of  concrete  pavement  built  each  yew  6j/  the  State  Highway  Commission. 


CONCRETE  WITH  JfrlNCH  OIL  TOP. 

UNSURFACED  CONCRETE. 

Class. 

Years  constructed. 

Totals. 

Class. 

1 
1915 

'ears  constructed. 

Totals. 

1913 

1914 

1915 

1916 

1917 

1918 

1919 

1920 

1913 

1914 

1916 

1917 

1918 

1919 

1920 

\ 

Miles. 
2.  S3 
5.83 
3.85 
1.88 
.10 
6.00 

Miles. 
71.35 
63.75 
18  27 
2.67 
.40 
11.50 

Miles. 
135.  59 
89.44 
60.19 
11.40 
2.40 
19.  04 

Miles. 
26.90 
15.  19 
6.49 
1.75 
.35 

Miles. 
2.87 
1.79 
2.  81 
1.50 
.10 

Milfi. 
0.27 
.63 

Miles. 
0.04 

Miles. 

Miles. 
239  85 

A 

Miles. 

Miles. 

Miles. 
3.74 
16  91 
7.98 
3.  25 
.  75 
.10 

Miles. 
46.48 
104  43 
46.92 
30.84 
11.20 
5.13 

Miles. 
3.78 
24.50 
12.47 
7.16 
2.19 

Miles. 
37.27 
48.87 
24.37 
10.24 
3.29 
.05 

Miles. 
53.  87 
66.78 
23  90 
12.20 
8.23 
.25 

Miles. 
33.24 
37.32 
4.15 

1.60 
1.00 
.10 

Miles. 
178.  38 
298.81 
119.79 
65.29 
26.66 
5.63 

Q 

176  65 

B 

c 

91  61 

C 

J) 

19.15 
3.35 
136.54 

D 

E 

E 

p 

F 

Total. 



Total. 

20.46 

167.  94 

318.06 

50.68 

9.07 

.90 

.04 

*  567.  15 

32.73 

245  00 

50.10 

124.09 

165.  23 

77.41 

'  694.  56 

i  This  total  includes  17.75  miles  of  new  Topeka  on  concrete  pavement  classified  as  failed. 

«  There  were  26.20  miles  a("JI"~ 
1916.    There  were  also  26.56  i 
1920.    In  addition  to  these  i 


TABLE  21.— Showing  all  classified  concrete  pavement  built  by  the  State,  surfaced  and  unsurfaced  combined. 


Year  built 

1913 

1914 

1915 

1916 

1917 

1918 

1919 

1920 

Totals. 

Class. 

Miles. 

Per 

cent. 

Miles. 

Per 

cent. 

Miles. 

Per 
cent. 

Miles. 

Per 
cent. 

Miles. 

Per 

cent. 

Miles. 

Per 
cent. 

Miles. 

Per 

cent. 

Miles. 

Per 

cent. 

Miles. 

Per 
cent. 

A 

2.83 
5.85 
3.85 
1.83 
.10 
6.00 

13.8 
28.6 
18.8 
9.0 
.5 
29.3 

71.35 
63.75 
18.27 
2.67 
.40 
11.50 

42.5 
38.0 
10.9 
1.6 
.2 
6.8 

139.  33 
106.35 
68.17 
14.65 
3.15 
19.14 

39.7 
30.3 
19.4 
4.2 

5.5 

73.38 
119.62 
•53.41 
32.59 
11.55 
5.13 

24.8 
40.5 
18.1 
11.0 
3.9 
1.7 

6.65 
26.29 
15.28 
8.66 
2.29 

11.3 
44.4 

25.  S 
14.6 
3.9 

37.54 
49.50 
24.37 
10.24 
3.29 
.05 

30.0 
39.6 
19.5 
8.2 
26.6 
.4 

53.91 
66.78 
23.90 
12.20 
8.23 
.25 

32.6 
40.4 
14.4 
7.4 
5.0 
.2 

33.24 
37.32 
4.15 
1.60 
1.00 
.10 

42.9 
48.2 
5.4 
2.1 
1.3 
.1 

418.23 
475.  46 
211.40 
84.44 
30.01 
42.17 

33.1 
37.3 
16.7 
6.7 
2.4 
3.4 

B       .                       

C.                         

D.  ...               

E  

F 

Total  

20.46 

100 

167.94  \    100 

350.79 

100 

295.68 

100      59.  17       100 

124.99 

100 

165.27 

100 

77.41 

100 

1,261.71         100 

Per  cent  of  total  each  year  — 

1.7 

13.3 

27.8 

23.4 

4.7 

9.9;; 

13.1 

6.1 

100 

TABLE  22.— Concrete  pavement  classes  and  underlying  soil  types. 


Miles  in  each  class. 

Total 

Total 
percent- 
ace  in 
classes  D, 
E.aiul  K. 

A. 

B. 

C. 

D. 

E. 

F. 

Soil  type; 

131.9 
.3 

89.5 
156.8 
53.2 

225.7 
.9 
104.9 
124.1 
34.8 

116.1 
.2 
56.0 
38.1 
8.5 

58.2 
.1 
11.5 
11.7 
3.1 

24.2 
.0 
2.0 
1.6 
2.3 

27.5 
.0 
9.0 
5.5 
.2 

583.6 
1.5 
272.9 
337.8 
102.1 

18.9 
.0 
8.2 
5.6 
5.5 

5.  Sand,  and  sand  and  gravel  

Total  

431.7 

49.04 

218.9 

84.6 

30.1 

42.2 

'  1,297.9 

12.1 

'  Includes  36.2  miles  built  by  counties. 

TABLE  23. — Shouing  all  roads  constructed  and  under  construction  in  the  California  Stale  system,  /></  types  and  by  years,  completed.1 


1913 

1914 

1915 

1916 

1917 

1918 

1919 

1920 

Total. 

Laid  by  California  State  Highway  Commission: 

Miles. 
20.46 

Miles. 

167.94 

MilfJi. 

318.06 

Mild. 

50.68 

Milts. 
9.07 

Miles. 
0.90 

Miles. 
0.04 

Miles. 

Miles. 
567.15 

32.73 

245.00 

50.10 

124.09 

165.  23 

79.41 

694.56 

11  15 

20  33 

7.74 

2.09 

3.44 

4.24 

1.40 

'50.39 

6  99 

.44 

19.13 

'26.56 

2.70 

23.50 

26.20 

Total  ...                                                                                       . 

31.61 

188.27 

361.23 

328.26 

62.61 

129.23 

165.  71 

97.94 

1,364.86 

140.  05 

19.04 

7.64 

8.22 

7.36 

8.27 

4.91 

<  55.  44 

16  37 

.31 

.07 

.91 

17.66 

Total  paving  of  all  kinds  built  by  California  Highway  Commission  
Graded  but  not  paved    .  .                                                       ..... 

50.65 

212.28 

369.76 

335.62 

62.68 

137.50 

170.62 

98.  S5 

1,578.01 
377.  10 

Grading  under  construction 

319.40 

Total  mileage,  State  construction  

2,  274.  51 

Laid  by  counties  and  incorporated  in  State  system: 
Concrete,  with  f-inch  oil  top  

22.81 

Concrete,  with  IJ-inch  bituminous  surface.  .  ..        

1.01 

Concrete,  unsurfaced  

13.58 

Oil  macadam  

171.15 

16.54 

Total  mileage,  county  construction  

225.09 

2,  499.  60 

1  Approximately  as  of  Sept.  15, 1920. 

'  17.75  miles  of  IJ-mch  Topeka  or  concrete  which  was  classed  F  is  included,  but  appears  elsewhere  under  concrete  surface  with  |-inch  oil  top. 

'  This  total  includes  9.2ft  miles  of  "double-decked"  or  second-story  concrete. 

1 15.22  miles  resurfaced  only;  base  built  by  county. 


63 


PLATE   XVII. 


' 


CLASS   A   PAVEMENT.     1    SONOMA  C. 


CLASS   A    PAVEMENT.     17   PLACER  A. 


64 


CLASS   B   PAVEMENT.     7  SOLANO   D. 


PLATE   XVIII. 


CLASS   B   PAVEMENT.     4   LOS   ANGELES   A. 


65 


PLATE   XIX. 


!"M'!|!|  I.I  I    ii 


CLASS  C   PAVEMENT.     7  SOLANO   A. 


L 


CLASS  C   PAVEMENT.     5  ALAMEDA   A.   OIL  TOP 


75712—22 5 


66 


PLATE    XX. 


CLASS    D    PAVEMENT.      8   SOLANO    A. 


CLASS   D    PAVEMENT.     4  LOS   ANGELES   A. 


67 


PLATE   XXI. 


CLASS   E   PAVEMENT.     7   SOLANO   D. 


CLASS   E    PAVEMENT.  4  KERN   C. 


68 


PLATE   XXII. 


CLASS    F   PAVEMENT.      15  COLUSA   A.   OIL  TOP. 


CLASS   F   PAVEMENT.     2   VENTURA   B.   OIL   TOP. 


69 


PHOTOGRAPHS. 

Photographs  at  standard  intervals  of  from  one-tenth 
to  five-tenths  of  a  mile  were  taken  throughout  the 
inspection.  Supplementary  close-up  pictures  of  spe- 
cial features  or  defects  were  also  taken. 

The  photographs  supported  the  field  classifications 
and  checked  in  general  with  the  notes,  but  also  tended  to 
indicate  a  higher  class  than  existed,  particularly  where 
oil  surfacing  was  present.  On  the  other  hand,  the  pho- 
tographs, by  foreshortening,  tended  in  exceptional 
cases  to  indicate  as  class  B  some  pavement  that  be- 
longed to  class  A.  All  such  cases  were  carefully 
rechecked  in  the  field  but  the  oil-surface  concrete  is 
still  probably  classed  somewhat  too  high  and  conse- 
quently the  diagram  of  Plate  XVI  must  be  interpreted 


samples  of  soil  taken  at  those  points  on  the  different 
routes  where  it  was  deemed  desirable  to  take  sample 
cores  of  the  pavement  itself. 

Such  soil  samples  were  taken  to  indicate  the  soil 
and  the  subsoil  to  a  depth  of  6  feet,  and  these  samples 
were  classified  by  experts  of  the  Bureau  of  Soils; 
results  from  the  classification  of  these  samples  were 
given  precedence  in  any  apparent  conflict  of  soil 
classification. 

For  those  special  portions  of  the  pavement  where  in- 
tensive study  was  found  desirable  to  determine  the 
cause  and  nature  of  failure  of  pavement,  additional 
soil  samples  were  taken  in  considerable  numbers  and 
were  examined  in  the  laboratory  of  the  University  of 
California  for  moisture  content  and  moisture  equiva- 


:RACKS  IN  ADOBE  SOIL.    3  BUTTE  D. 


with   this   in   mind.     The   photographs   arranged   by    lent,  and  the  results  are  described  in  the  reports  on  the 
routes  are  filed  in  the  Bureau  of  Public  Roads.  special  defective  sections  below. 


SUBGKADE  SOIL. 

Supplementing  inspection  of  the  pavement  an  inspec- 
tion and  classification  of  the  underlying  soil  was  simul- 
taneously made  and  subsequently  checked  in  the  field 
by  soil  experts  from  the  Bureau  of  Soils  and  the  divi- 
sion of  farm  irrigation  investigations  of  the  Bureau  of 
Public  Roads,  all  in  the  Department  of  Agriculture. 
The  soil  classification  was  further  checked  by  soil  maps 
and  other  published  and  unpublished  information  avail- 
able in  the  Department  of  Agriculture  or  at  the  Uni- 
versity of  California.  This  soil  classification  also  is 
indicated  symbolically  on  the  condition  diagrams  in 
accordance  with  the  legends  there  shown. 

In  addition  to  the  soil  classification  reported  by  the 
engineers  in  the  field,  a  supplementary  determination 
of  the  class  of  soil  was  made  from  several  hundred 


SOIL  CLASSIFICATION. 

The  classifications  of  the  subgrade  soil  used  and 
shown  symbolically  on  the  condition  diagrams  of  Ap- 
pendix II  are  as  follows: 

1.  Clay   and   adobe   soils    (includes  clay,   -illy    clay, 
clay-loam  and  clay). 

2.  Marsh  lands  (includes  salt  marsh  and  peat  lands). 

3.  Loams   (includes  loam,  clay-loam,  silt-loam,  and 
silty  clay  loam). 

4.  Sandy  loam  (includes  coarse  sandy  loam  and  fine 
sandy  loam). 

5.  Sand,  and  sand  and  gravel. 

In  connection  with  the  photographic  exhibits  accom- 
panying this  report  are  shown  photographs  of  the  lab- 
oratory experimental  tests  for  shrinkage  of  various 
samples  of  soil  of  the  above  classes. 


70 


SPECIAL  STUDIES  OF  DEFECTIVE  PAVEMENT. 

To  investigate  particular  causes  of  failure  on  12 
sections  of  the  State  highway,  where  classification 
showed  a  large  percentage  of  classes  D  to  F,  special  in- 
tensive studies  were  made  over  periods  of  from  3  to  14 
days  by  six  senior  highway  engineers  of  the  Bureau  of 
Public  Roads. 

In  each  case  the  interval  of  construction,  the  name 
of  the  contractor  and  resident  engineer,  the  nature  and 
source  of  materials,  the  available  reports  of  State  in- 
spectors, weather  and  other  details  surrounding  the 
work  were  carefully  determined.  The  test  results  of 
materials  used  were  also  investigated  together  with  the 
reports  of  tests  of  concrete  made  by  the  laboratory  of 
the  State  Highway  Commission,  and  the  tests  of  con- 


impact  of  heavy  trucK  traffic  and  combinations  of  two 
or  more  of  the  above  causes.  The  State  repair  trucks 
overloaded  with  material  have  greatly  contributed  to 
the  completion  of  failure  during  repairs  on  parts  of  the 
same  or  near-by  sections. 

A  special  effort  was  made  to  determine  the  nature  of 
the  subgrade  soil  and  its  moisture  content.  All  of  these 
investigations  were  carried  on  between  the  middle  of 
September  and  the  first  of  November  and  the  soil 
studies  were  made  largely  in  September  and  early  in 
October  at  the  end  of  the  dry  season.  It  is  to  be  noted 
that  the  season  of  1920  was  unusually  dry  and  that  pre- 
vious seasons  also  had  been  noticeably  dry  ones. 

The  soil  investigations  required  borings  to  be  made 
at  intervals  across  the  entire  section  of  the  roadway  and 


ALKALI    CRUST   ON    ADOBE    SOIL.      7    GLENN    A. 


crete  cores  drilled  from  the  pavement.  Extensive  in- 
vestigations of  drainage  conditions  on  the  ground  and 
in  the  vicinity  were  also  made,  local  people  were  inter- 
viewed, and  a  special  effort  was  made  to  determine  al- 
kali conditions  and  the  source  of  mixing  and  curing 
water  for  all  concrete. 

As  a  result  of  these  12  special  studies  there  are  re- 
ports in  great  detail  on  file  in  the  Bureau  of  Public 
Roads.  These  reports  show  varying  primary  and  sec- 
ondary causes  of  failure.  Among  these  causes  subsoil 
and  drainage  conditions,  particularly  on  new  locations, 
predominate  and  poor  and  thin  concrete  follows. 
One  failure  is  apparently  due  to  construction  of  con- 
crete pavement  in  the  cool  fall,  winter,  and  early  spring 
seasons  followed  by  the  high  temperature  of  July  in 
the  interior  valley.  Several  reports  raise  the  question 
of  alkali  in  the  mixing  or  ponding  water  or  in  the 
moist  subgrade  and  particularly  in  basin  or  flat  valley 
areas.  Other  contributory  causes  are  dirty  sand  and 
poor  curing,  lax  inspection  of  mix,  rough  finish  and 


to  a  depth  of  about  (5  feet.  From  six  to  eight  such 
borings  were  made  in  each  instance  on  35  sections. 
They  were  made  with  a  2-inch  soil  auger  in  the  center 
of  the  pavement  and  at  the  edges  and  through  the  em- 
bankment in  fill  and  in  the  ditch  line  in  certain  in- 
stances. The  samples  which  were  brought  up  from 
the  various  depths  were  immediately  placed  in  tightly 
sealed  tin  cans  and  shipped  to  the  soil  laboratory  of  the 
University  of  California.  In  all  1,207  such  samples 
were  taken. 

In  the  laboratory  three  principal  tests  were  made  on 
the  soils: 

(a)  Soil  moisture  determination. 

(b)  Moisture  equivalent  determination. 

(e)   Contraction  or  shrinkage  measurement. 

SOIL  MOISTURE  DETERMINATIONS. 

The  contents  of  each  can  were  thoroughly  mixed  and 
reduced  by  rolling  about  10  times  on  a  sheet  of  celluloid 
and  duplicate  100-gram  samples  weighed  into  aluminum 


71 


dishes  2  inches  in  diameter  and  one-half  inch  in  depth. 
Moister  soils  were  kneaded  to  a  round  mass.  The  filled 
dishes  were  weighed  and  placed  in  an  electric  oven  for 
five  hours  or  more  (and  all  night  in  case  of  heavy  soils), 
and  all  at  a  temperature  of  about  100°  C.  They  were 
then  cooled  in  a  calcium-chloride  dessicntor  and  again 
weighed.  The  percentage  was  then  calculated  as  the 
ratio  (in  hundredths)  of  the  difference  between  the 
first  two  weighings  (of  wet  and  dry  soil  and  dish) 
divided  by  the  net  weight  of  the  dry  soil.  In  all  there 
were  1,428  such  moisture  determinations. 

MOISTURE  EQUIVALENT   DETERMINATIONS." 

To  develop  a  comparative  basis  for  degree  of  satura- 
tion of  soils,  moisture  equivalent  determinations  were 
made  on  150  type  samples.  The  method  of  Briggs  and 
Schauntz  was  used  and  consisted  essentially  in  de- 
termining the  amount  of  moisture  that  a  sample  can 
hold  against  a  force  of  one  thousand  times  gravity  de- 
veloped by  centrifugal  force.  The  contents  of  each  can 
were  air-dried,  reduced  by  rolling,  and  sifted.  The 
centrifuge  used  to  drive  off  moisture  held  16  sample 
cups  and  8  samples  in  duplicate  were  run  simultane- 
ously. Two  wetted  check  samples  were  placed  in  cups 
directly  opposite  in  the  machine,  which  was  revolved 
at  a  speed  of  2,40(1  revolutions  per  minute  for  30  min- 
utes. Then  the  samples  were  quickly  removed  to  tightly 
covered  cans  and  weighed  at  once.  The  can  lids  were 
then  removed  and  the  sample  dried  over  night  at  100° 
C.  The  cans  were  then  covered  and  when  cooled  were 
again  weighed.  The  percentage  of  moisture  in  the 
sample  was  determined  as  the  quotient  of  the  loss  by 
drying  after  removal  from  the  centrifuge  and  the 
weight  of  the  dry  soil. 

SHRINKAGE   TESTS. 

One  hundred  and  forty  shrinkage  tests  were  run  on 
the  soil  samples  in  order  to  determine  the  per  cent 
of  shrinkage  under  standard  conditions.  The  soils 
varied  from  light  sand  to  heavy  adobe,  and  conse- 
quently contraction  varied  greatly.  Typical  samples 
were  dried  and  sifted  and  then  wetted  to  about  capil- 
lary saturation  and  kneaded  and  placed  in  aluminum 
cups  to  dry.  The  wet  soil  was  struck  level  and  allowed 
to  dry  in  room  temperature  four  days.  The  volume  of 
each  soil  cake  was  then  determined  by  mercury  dis- 
placement and  compared  with  the  volume  of  the  cup. 
The  volume  of  the  dried  soil  was  expressed  as  a  per- 
centage of  the  wet  volume  or  of  the  volume  of  the 
cup. 

Exact  details  of  each  process  of  all  of  the  above  tests 
are  on  file  in  the  Bureau  of  Public  Roads.  In  the 
shrinkage  tests  water  was  first  tried  instead  of  mercury, 
but  it  was  found  necessary  to  waterproof  the  cakes  with 

10  See  reprint  from  proceedings  of  American  Society  of  Agronomy, 
volume  2,  1920,  "  Moisture  Equivalent  Determinations  and  their  Appli- 
cation," by  Lyman  J.  Briggs  and  J.  W.  McLanr. 


sprayed  shellac.  The  volume  of  this  shellac  coating 
was  negligible  but  the  coating  was  not  perfectly  water- 
proof and  air  clung  to  the  inside  of  the  cup  and  cakes 
and  prevented  an  accurate  reading  before  water  could 
penetrate  the  shellac,  consequently  mercury  was  substi- 
tuted. There  was  some  difficulty  with  the  mercury  on 
account  of  its  tendency  to  accumulate  dirt  and  oxidize 
at  the  surface  which  required  wiping  the  mercury  sur- 
face with  chamois  after  each  run. 

Table  24  shows  the  percentage  of  shrinkage,  moisture 
equivalent  and  moisture  content  of  typical  subgrade 
soils  and  Plates  XXIII  to  XXVI,  inclusive,  are  corre- 
sponding pictures  showing  shrinkage. 

SUBSOIL  MOISTURE  CROSS  SECTIONS. 

In  Appendix  D,  plates  LIX  to  LXIV,  inclusive,  are 
given  9  cross  sections  of  the  State  highway  showing 
lines  of  equal  moisture  content  as  determined  by  the 
moisture  content  test  described  above.  These  sections 
are  selected  as  representative  of  the  35  reported  and  in- 
dicate in  a  general  way  the  loss  of  moisture  in  the  dif- 
ferent parts  of  the  section.  In  some  cases  the  nature  of 
the  soil  is  shown  on  the  section.  The  general  nature 
of  the  soil  in  each  case  is  also  indicated  on  the  "  Condi- 
tion diagram"  for  the  corresponding  section  (Plates 
LXXIII  to  LXXXIV.  inclusive,  Appendix  H). 
These  moisture  content  sections  are  presented  as  indica- 
tive of  a  condition  which  probably  operates  to  cause 
unequal  bearing  power  across  the  section  of  the  pave- 
ment. The  samples  were  nearly  all  taken  before  any 
rains  fell  in  the  fall  of  1920  and  after  a  very  dry  sum- 
mer. The  cross  sections  clearly  show  that,  on  heavy 
soil,  moisture  remains  directly  below  the  center  of  the 
pavement  indefinitely  and  leaves  the  pavement  at  the 
edges  with  resultant  shrinkage  and  change  in  l>earing 

power. 

BEARING   POWER. 

Soil  studies  l>egun  in  the  laboratory  of  the  Bureau  of 
Public  Roads  at  Washington  have  resulted  in  prelimi- 
nary and  tentative  tests  for  studying  the  bearing  power 
of  soils. 

The  tests  consist  essentially  in  subjecting  previously 
prepared  samples  of  the  soil  containing  various  per- 
centages of  moisture  to  uniformly  increasing  loads  ap- 
plied through  a  bearing  block  10  square  inches  in  area 
and  measuring  the  corresponding  penetration. 

For  two  samples  of  soil  with  varying  moisture  con- 
tent, results  are  shown  in  Plates  XXVII  and 
XXVIII." 

Since  a  soil  is  characterized  by  its  moisture  equiva- 
lent, when  the  moisture  content  exceeds  the  moisture 
equivalent  it  contains  sufficient  free  water  to  consider- 
ably reduce  the  bearing  power,  therefore,  the  moisture 
equivalent  percentage  is  a  critical  percentage  in  respect 
to  bearing  power. 

11  These  are  advanced  studies  from  work  now  under  way. 


72 


PLATE   XXIII. 


PROFILE   VIEWS   OF   SOIL   SHRINKAGE.      SAMPLES    FROM    2    LOS   ANGELES    B. 


73 


PLATE   XXIV. 


I 


> 


PROFILE  VIEWS   OF  SOIL  SHf 


SAMPLES    FROM    5   ALAMEDA    B. 


74 


PLATE    XXV. 


TOP   VIEWS   OF   SOIL   SHRINKAGE.      SOIL   SAMPLES    FROM    1    SONOMA   C. 


75 


PLATE   XXVI. 


TOP   VIEWS   OF   SOIL   SHRINKAGE.      SOIL  SAMPLES    FROM    5   ALAMEDA    B. 


76 


PLATE    XXVII. 


(O 

D 

z 

g                               CURVES  SHOWING  RELATION  BETWEEN  MOISTURE  CONTENT 

AND 
?                                                                                        * 

0                                                 BEARING  POWER  OF  SOIL  (6807 

1 

1 

440 

3  ° 

400 

r^ 

J 

^Xs 

360 

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P^ 

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<r 

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£•_ 

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r-^' 

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Jf 

880 

\^^ 

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rf 

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rf 

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6 

£f 

. 

T~ 

P 

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/ 

f 

/ 

4 

1C  A 

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1  O  U 

/ 

s 

/ 

s 

/ 

s 

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/ 

J 

MO 

ISTURE 

'31.8  f« 

y 

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•••••••• 

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.£>—  <i 

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STURE 

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a  —  o-^ 

80        40         60         80        100       180       140       160        180       200      820 

PENETRATION  IN  .001  INCHES 

MOISTURE  EQUIVALENT  NOT  AVAILABLE 

SAMPLE  FROM  COLUSA  7-C     8.    MILES  NORTH  OF  COLUSA  JUNCTION 

77 


PLATE    XXVIII. 


CURVES  SHOWING  RELATION  BETWEEN  MOISTURE  CONTENT 

AND 
BEARING  POWER  OF  SOIL  17227 


80         40         60         80        100        120        140       |60        180       200       220 
PENETRATION   IN   .001   INCHES 


SAMPLE  FROM  LOS  ANGELES    8-B 

MOISTURE  EQUIVALENT  =  E4.0  <\ o 
MOISTURE  CONTENT  OF  ADJACENT  SAMPLES  IN  PLACE  ABOUT  21.5 


78 


TABLE  24. — Showing  percentage  of  shrinkage,  moisture  equivalent,  and  moisture  content  of  subgrade  soils. 


Location  and  position. 

Photo- 
graph 
No. 

Shrink- 
age per 
centage 
of  origi- 
nal wet 
volume 
after 
drying. 

Moisture 
equiva- 
lent (per 
cent). 

Moisture 
content 
(per 
cent). 

Location  and  position. 

Photo- 
graph 
No. 

Shrink- 
age per 
centage 
of  origi- 
nal wet 
volume; 
after 
drying. 

Moisture 
equiva- 
lent (per 
cent). 

Moisture 
content 
(per 
cent). 

County. 

Route, 
section. 

Mile  or 
station. 

Depth  of 
sample 
(feet). 

County. 

Route, 
section. 

Mile  or 
station. 

Depth  of 
sample 
(feet). 

Kern 

4-F 
4-F 
4-F 
4-F 
4-F 
4-F 
4-F 
4-F 
4-B 
4-B 
4-B 
4-B 
4-B 
4-B 
4-B 

1-C 
1-C 
1-C 
1-C 
1-C 
1-C 
1-C 
1-C 
1-C 
1-C 
1-C 
1-C 

2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 
2-B 

1-G 
1-G 
1-G 
1-G 
1-G 
1-G 

Mile. 
3.7 
3.7 
4.0 
4.0 
4.6 
4.6 
5.1 
5.1 
2.3 
2.3 
2.7 
2.7 
1.7 
3.2 
3.2 
Station. 
238 
238 
238 
238 
284 
2-84 
284 
284 
319 
319 
319 
319 
Mile. 
12.2 
12.2 
12.2 
12.2 
13.2 
13.2 
13.2 
13.2 
15.0 
15.0 
15.0 
15.0 
15.5 
15.5 
15.5 
15.5 
26.5 
Station. 
323 
323 
323 
413 
413 
413 

0-  1.5 
1.  5-  3.  0 
0-  1.5 
1.5-  3.0 
0-1.5 
1.5-3.0 
0-  1.5 
1.  5-  3.  0 
0-1.5 
1.  5-  3.  0 
0-  1.5 
1.5-  3.0 
3.  0-  4.  5 
0-  1.5 
1.  5-  3.  0 

0-1.5 
1.  5-  3.  0 
3.  0-  4.  5 
4.5-6.0 
0-  1.5 
1.5-3.0 
3.  0-  4.  5 
4.  5-  6.  0 
0-  1.5 
1.5-3.0 
3.  0-  4.  5 
4.  5-  6.  0 

0-  1.5 
1.5-3.0 
3.  0-  4.  5 
4.  5-  6.  0 
0-1.5 
1.5-3.0 
3.  0-  4.  5 
4.  5-  6.  0 
0-1.5 
1.5-3.0 
3.  0-  4.  5 
4.  5-  6.  0 
0-  1.5 
1.  5-  3.  0 
3.  0-  4.  5 
4.  5-  6.  0 
0-1.5 

0-  1.2 
1.  5-  3.  0 
3.  0-  4.  5 
0-1.5 
1.  5-  3.  0 
3.  0-  4.  5 

1 
2 
3 
4 
5 
6 
7 
8 
9 
10 
11 
12 
13 

80.82 
83.99 
69.1 
63.  25 
74.  7N 
80.51 
75.96 
76.  19 
79.63 
70.85 
84.89 
79.76 
93.05 

19.  95 
19.55 
22.  5 
29.4 
18.12 
15.7 
16.0 
18.8 
20.5 
23.  15 
14.92 
18.67 
12.22 
5.35 
5.78 

40.6 
42.7 
25.3 
21.9 
41.2 
43.3 
32.3 
32.0 
33.7 
33.3 
28.2 
31.25 

27.7 
28.89 
30.47 
31.67 
27.63 
33.1 
30.91 
29.19 
24.21 
28.52 
27.99 
26.81 
26.3 
24.4 
23.95 
20.5 
23.7 

25.8 
24.7 
30.0 
29.4 
29.4 
29.8 

14.0 
13.57 
13.  55 
15.X 
9.21 
5.71 
8.61 
10.82 
14.73 
16.3 
11.65 
14.0 
11.16 
4.01 
4.47 

32.  15 
50.7 
24.9 
24.2 
36.  5 
29.6 
30.4 
29.0 
23.6 
29.4 
26.65 
28.9 

16.13 
14.82 
13.93 
15.28 
22.16 
20.15 
17.13 
17.2 
•21.52 
19.  35 
18.52 
16.46 
19.2 
18.4 
18.75 
14.95 
17.2 

22.9 
25.1 
28.8 
29.47 
30.67 
32.05 

Kings.   . 

10-A 
10-4 
10-A 
10-A 
10-A 
10-A 
10-A 
10-A 
10-A 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
5-B 
14-B 
14-B 
14-B 
14-B 
14-B 
14-B 
14-B 
14-B 
14-B 
14-B 
14-B 
7-B 
7-B 
7-B 
7-B 
7-B 

Mile. 
4.55 
6.95 
3.75 
:i.  75 
3.75 

:i.  75 
4.55 
4.55 
4.55 
2.55 
2.55 
2.55 
2.55 
2.55 
2.55 
2.55 
4.4 
4.4 
4.4 
4.4 
4.4 
4.4 
4.4 
6.0 
6.0 
6.0 
6.0 
6.0 
6.0 
6.0 
6.7 
6.7 
6.7 
6.7 
6.7 
6.7 
6.7 
23.9 
23.9 
23.9 
23.9 
24.8 
24.8 
14 
14 
14 
14 
14 
34.5 
34.5 
34.5 
34.5 
34.5 

0-  1.5 
1.  5-  5.  0 
3.0-  4.5 
3.0-  4.5 
4.  5-  6.  0 
4.  5-  6.  0 
0-  1.5 
0-  1.5 
1.5-  2.0 
0-  1.5 
1.5-  3.0 
3.  0-  4.  5 
4.  5-  6.  0 
6.0-  7.5 
7.  5-  9.  0 
9.0-10.0 
0-1.5 
1.5-  3.0 
3.  0-  4.  5 
4.5-6.0 
6.0-  7.5 
7.5-9.0 
9.0-10.0 
0-  1.5 
1.5-  3.0 
3.0-  4.5 
4.5-  6.0 
6.0-  7.5 
7.  5-  9.  0 
9.  0-10.  0 
0-1.5 
1.5-3.0 
3.0-4.5 
4.  5-  6.  0 
6.  0-  7.  5 
7.5-  9.0 
9.  0-10.  0 
0-1.5 
1.5-3.0 
3.0-4.5 
4.  5-  6.  0 
0-  1.5 
1.5-3.0 
0-1.5 
1.5-  3.0 
3.0-  4.5 
4-5-  0.0 
6.0-7.5 
0-  1.5 
1.5-3.0 
3.0-4.5 
4.5-  6.0 
6.0-7.5 

31 
32 

86.75 
82.24 

15.56 
20.34 
13.  72 
21.9 
19.05 
13.  82 
15.  15 
15.39 
18.06 
17.7 
17.7 
22.  45 
21.3 
22.9 
26.0 
26.7 
21.9 
21.3 
23.  5 
24.4 
21.30 
19.67 
21.89 
27.  51 
26.  08 
37.02 
33.  71 
36.45 
38.58 
33.29 
13.10 
15.48 
19.32 
24.19 
32.13 
29.81 
45.23 
25.25 
28.45 
27.00 
•!.\.  94 
19.72 
19.39 
29.39 
30.73 
30.92 
18.86 
30.51 
21.  59 
26.81 
33.83 
24.91 
21.27 

10.98 
12.  25 
11.35 
14.25 
17.63 
12.  25 
12.07 
12,88 
14.56 
10.6 
11.0 
12.4 
13.0 
15.0 
16.7 
17.6 
14.  8f. 
12.4 
11.9 
12.2 
8.75 
8.12 
9.52 
13.  95 
17.70 
30.23 
24.50 
21.40 
21.78 
22.27 
9.22 
13.27 
18.27 
23.92 
32.18 
27.16 
29.65 
16.83 
15.43 
13.19 
10.12 
12.82 
9.33 
14.% 
22.50 
25.69 
20.24 
24.00 
18.94 
124.98 
14.26 
14.40 
15.73 

Do  
Do 

Do  
Do  
Do  
Do    ... 

Do    

Do 

Do 

Do 

Do 

Do  . 

Do 

Do  

Do  
\lameda  
Do  . 

Do 

Do 

39 
40 
41 
42 
43 
44 
45 
46 
47 
48 
49 
50 
1 
2 
3 
4 
5 
6 

S 
9 
10 
14 
15 
16 
17 
18 
19 
1 
2 
3 

71.35 

73.  Ofi 
60.25 
65.61 
64.39 
57.5 
54.  97 
62.04 
59.  33 
57.29 
55.  23 
59.11 
68.46 
65.  81 
52.  21 
52.18 
42.75 
42.85 
36.22 

Do 

Do 

Do  .. 

Do      .... 

Do 

Do 

Do 

Do 

Do 

14 
15 

42.89 
60.66 

Do.. 

Do 

Do  

Do... 

Do 

Do 

Do  

16 
17 
IX 
19 
20 
21 
22 
23 

82.17 
46.02 
42.05 
62.29 
59.94 
46.66 
51.84 
66.7 
60.05 

55.67 
56.56 
51.36 
52.58 
53.83 
46.11 
50.14 
49.41 
60.42 
53.03 
55.54 
57.88 
60.76 
66.  03 
63.01 
70.  28 
72.08 

65.65 
66.54 
66.08 

Do... 

Do  

Do 

Do  

Do     . 

Do  .. 

Do 

Do  .. 

Do 

Do... 

Do    . 

Do 

Do 

Do  .. 

Do     . 

Do 

Do 

Los  Angeles.  .  . 
Do 

19 
20 
21 
22 
23 
24 
25 
26 
27 
28 
29 
30 
34 
35 
36 
37 
38 

24 
25 
33 

Do 

Do  .. 

39.78 
84.29 
82.67 
72.47 
62.22 
49.47 
51.54 
39.77 
57.95 
55.73 
57.64 

Do 

Do 

Do 

Do 

Do 

Do 

Do 

Do 

Do 

Do 

Do 

Do 

Do 

Do.. 

Contra  Costa. 
Do    . 

Do 

Do 

Do 

Do 

Do 

Do 

Do 

4 

75.16 

Do 

Do 

Do 

Do 

5 
6 
7 
10 
11 
13 
14 
15 
16 
17 

59.09 
57.11 
57.53 
78.40 
52.78 
61.15 
51.33 
49.83 
62.  52 
64.49 

Do 

Do 

Do 

Do    . 

Humboldt  
Do 

Do    . 

Do     

So  lano  . 

Do 

Do    . 

Do 

Do 

Do 

Do 

Do 

Do 

CONCRETE  SAMPLE  CORES. 

Six  hundred  and  thirty-eight  concrete  test  cylinders. 
4^  inches  in  diameter,  were  drilled  from  various  Port- 
land cement  concrete  sections  on  State  highway  routes 
numbered  1,  2,  3,  4,  5,  7,  14,  and  15,  and  totaling  800 
miles.  These  cores  were  drilled  in  pairs  at  designated 
stations,  and  their  locations  are  shown  on  the  condition 
diagrams  of  Appendix  H.  Each  pair  was  drilled  in 
the  pavement  about  25  feet  apart  and  on  opposite  sides 
of  the  road  and  4  feet  from  the  edge.  The  designated 
stations  were  selected  in  advance  from  the  plotted  con- 
dition diagram  to  represent  as  well  as  possible  all 
classes  of  pavement  on  the  chosen  routes.  Under  each 
core  one  or  more  soil  samples  were  taken  to  a  depth  of 
C  feet.  Two  types  of  core  drills  mounted  on  trucks 
were  used — the  chilled  steel  shot  drill  and  the  diamond 
drill  (views  of  the  diamond  drill  are  shown  in  Plate 
XXIX).  The  shot  drill,  loaned  by  the  State,  was  first 
tried,  but  after  drilling  cores  on  routes  3,  7,  14,  and  15, 


a  total  of  187  cores,  the  diamond  drill  was  used,  and  it 
produced  not  only  cores  of  much  better  appearance,  but 
also  was  found  to  work  much  faster.  The  sides  of  the 
shot-drilled  cores  were  very  rough ;  the  mortar  fre- 
quently was  torn  out  in  the  process  of  drilling  to  a 
depth  of  one-fourth  incli  or  more.1-  The  sides  of  the 
diamond  cores,  on  the  other  hand,  wTere  very  smooth. 
The  photographs  of  both  diamond  and  shot-drill  cores, 
shown  in  Plates  XXX  and  XXXI.  illustrate  this  point. 
The  average  time  of  drilling  the  core  4  inches  in  depth 
in  1 : 2^  :  5  concrete,  with  the  shot  drill  was  about  42 
minutes — with  the  diamond  drill  about  5  minutes. 

A  complete  record  was  kept  of  the  operations  of  each 
drill  and  a  copy  forwarded  with  each  shipment  of  cores. 
Each  clay  the  cores  drilled  were  expressed  to  the  United 
States  Bureau  of  Standards  local  office  in  the  Ap- 
praisers' Building.  San  Francisco,  under  an  arrange- 

u  A  more  modern  design  of  thj  chilled  shot  drill  is  said  to  givi-  better 
results. 


79 


PLATE   XXIX. 


DIAMOND   DRILL,   SHOWING  CUTTING   EDGE  OF   BIT. 


GENERAL   VIEW   OF   DIAMOND   DRILLING   OUTFIT. 


80 


PLATE    XXX. 


D.IAMOND    DRILL  CORES    FROM    ROUTE  2. 

The  upper  number  on  the  label  shows  the  route  number  as  a  whole  number  and  the  core  number  as  a  decimal  following. 
The  lower  number  is  an  identification  number.  The  cores  are  drilled  in  pairs  for  a  check  and  so  shown.  The  location  of  each 
core  is  shown  by  a  corresponding  number  on  the  "Condition  Diagrams"  of  Appendix  J.  The  white  line  on  the  scale  shows 
the  4-inch  height. 


81 


PLATE   XXXI. 


75712—22 6 


SHOT   DRILL  CORES   FROM    ROUTES  7   AND   15  AND   DIAMOND   DRILL  CORES   FROM    ROUTE   H. 

(See  note  under  Plate  XXX.) 


82 


ment  for  cooperation  between  the  two  bureaus  to  do  the 
testing.  Thanks  to  the  hearty  cooperation  on  the  part 
of  the  local  representatives  of  the  Bureau  of  Standards 
this  arrangement  worked  perfectly. 

The  cores  were  subjected  to  the  following  tests : 

(1)  Visual  inspection  with  a  complete  record  of  the 
appearance,  distribution,  and  grading  of  coarse  aggre- 
gate and  sand,  presence  of  voids,  etc. 

(2)  Cores  were  photographed  in  sets  of  four  from 
opposite  sides. 

(3)  Measurement  of  maximum  diameter  and  maxi- 
mum and  minimum  height. 

(4)  Planimeter  measurements  to  determine  the  ap- 
proximate percentage  of  coarse  aggregate  by  tracing 
the  exposed  areas  of  coarse  aggregate  in  two  4-inch 
squares  on  opposite  sides  of  the  core. 

(5)  Absorption  test  made  by  weighing  the  core  in 
air,  immersing  in  water  for  24  hours,  surface  drying, 
and  again  weighing. 

(6)  Weight  per  cubic  foot  by  weighing  in  air  (dry), 
and  in  air  and  water  after  24  hours'  absorption,  to  "de- 
termine specific  gravity,  from  which  the  weight  per 
cubic  foot  was  obtained  by  multiplying  by  62.37. 

(7)  Compression  tests  in  a  100,000-pound  Olsen  ma- 
chine with  slow  speed  of  one-tenth  inch  per  minute  on 
cores,  both  ends  of  which  had  been  capped  with  a  thin 
layer  of  neat  Portland  cement  gaged  with  a  4  per  cent 
solution  of  calcium  chloride.    Previous  to  capping,  the 
lower  surfaces  of  the  cores  in  sets  of  about  50  were 
ground  to  an  approximate  plane  on  a  stone  grinding 
table,  and  after  capping  they  were  allowed  to  rest  three 
days.     Cores  were  cemented  temporarily   in   vertical 
position   during  the  grinding   process   by   plaster  of 
Paris.    The  operation  of  grinding  required  about  two 
hours. 

Of  the  cores  drilled  a  few  were  sent  to  a  commercial 
laboratory  and  95  to  the  division  of  tests  in  the  Bureau 
of  Public  Roads  in  Washington,  D.  C.  Several  irregu- 
lar-shaped blocks  of  Portland  cement  concrete  taken 
from  the  pavements  were  also  sent  to  the  division  of 
tests. 

RESULTS  OF  TESTS. 

(1)  A  study  of  the  remarks  from  the  visual  inspec- 
tion shows  that  the  cores  vary  considerably  in  appear- 
ance, both  as  affecting  (a)  maximum  size  of  the  coarse 
aggregate,  (b)  its  distribution,  (c)  coarseness  of  sand, 
etc.  On  the  other  hand,  not  very  much  variation  in 
density  is  observed.  The  presence  of  characteristic  air 
voids  along  the  lower  portion  of  pieces  of  exposed 
coarse  aggregate  is  frequently  noted.  As  far  as  could 
be  noted  from  this  inspection  the  maximum  size  of 
coarse  aggregate  varied  from  slightly  over  2  inches 
down  to  three-fourths  inch.  The  sand,  as  a  rule,  was 


well  graded  and  clean,  the  one  outstanding  exception 
to  this  being  on  route  2,  Los  Angeles  County,  Section 
C.  In  this  section  three  out  of  six  cores  were  broken 
during  the  process  of  drilling,  and  examination  showed 
the  presence  of  dirty  sand.  The  three  cores  which  came 
out  whole  showed  very  low  compression  tests.  The  con- 
crete after  fracture  indicated  dirt  in  the  mortar. 

(2)  The  photographic  record  was  of  value  in  check- 
ing notes  of  visual  inspection  particularly  relative  to 
the  size  and  distribution  of  coarse  aggregate.    Photo- 
graphs of  typical  sets  are  shown  in  Plates  XXX  and 
XXXI. 

(3)  Shot  cores  varied  in  diameter  from  4.4  to  4.6 
inches,  as  near  as  could  be  measured  by  calipering. 
The   diameter   of   the   diamond   cores   on   the   other 
hand    was   practically    constant    at    4.5    inches.     The 
height  of  the  cores  showed  the  thickness  of  pave- 
ment, and  where  the  nominal  thickness  was  4  inches 
the  cores  varied  all  the  way  from  3  to  5  inches.    As  a 
rule,  however,  the  average  variation  in  the  depth  of 
core  in  any  given  contract  is  not  more  than  0.5  inch, 
and  was  generally  greater  rather  than  less  than  the 
nominal  depth  of  the  pavement. 

(4)  Planimeter  measurements  to  ascertain  the  per- 
centage of  coarse  aggregate  were  taken  on  194  cores  on 
routes  4,  7,  and  14  and  part  of  route  2.     The  average 
percentage  of  coarse  aggregate  as  determined  by  this 
method  (assuming  the  volumes  proportional  to  areas) 
is  shown  in  Table  25.     It  will  be  noted  that  the  average 
percentage  in  all  cases  is  approximately  50,  which  is, 
theoretically,  about  the  average  of  solid  stone  in  a  given 
volume  of  either  1 : 2 : 4  or  1 :  2^ :  5  concrete,  assuming  45 
per  cent  voids.     Individual  planimeter  measurements 
varied  from  less  than  30  to  more  than  60  per  cent.     The 
great  majority,  however,  were  within  5  per  cent  of  the 
general  average  of  50.     Typical  core  tracings  are  shown 
in  Plates  XXXII  and  XXXIII. 

(5)  Absorption  tests  showed  a  variation  in  percent- 
age of  absorption  from  somewhat  less  than  1  per  cent 
in  rare  cases  to  about  2|  per  cent,  the  average  being 
about  \\  per  cent.     There  appeared  to  be  very  little 
relation  between  the  percentage  of  absorption  observed 
and  other  physical  characteristics  of  the  cores. 

(6)  Weight  per  cubic  foot  determinations  showed 
results  varying  from  140  to  160  pounds  per  cubic  foot. 
Cores  2.66,  2.67,  and  2.70,  which  have  been  noted  above 
in  connection  with  the  presence  of  dirty  sand  in  the 
mortar,  showed  a  weight  per  cubic  foot  of  132  pounds. 
With  this  single  exception,  however,  all  the  cores  tested 
averaged  very  close  to  150  pounds  per  cubic  foot. 

(7)  Examination  of  the  concrete  specimens  after  the 
compression  test  showed,  as  a  rule,  that  the  coarse  ag- 
gregate was  sound  and  of  good  quality,  composed  of  a 


PLATE   XXXII. 


TYPE  OF  GRADING  AND   DISTRIBUTION  OF   COARSE    AGGREGATE 


A  SERIAL  -4.33 
MILL  54.5 


PERCENTAGE  OF 

COARSE  AGGREGATE 

63.00/0 


A   SERIAL  4.27 A 
MILE  51.2 


PERCENTAGE  OF 
COARSE  AGGREGATE 


84 


PLATE    XXXIII. 


TYPE  OF  GRADING  AND  DISTRIBUTION  OF  COARSE  AGGREGATE 


B    SERIAL  4.117 
MILE  776 

PERCENTAGE  OF 
COARSE  AGGREGATE 
47.  1  ft 


i 


5?O 


B   SERIAL  4.99 
MILE  4.40 

PERCENTAGE  OF 
COARSE  AGGREGATE 
3E.8°fo 


85 


PLATE   XXXIV. 


DIAGRAM 

SHOWING 
RELATION  BETWEEN  AGE  OF  CONCRETE  IN  YEARS  AND    CRUSHING    STRENGTH 


NUMBER  OF  TESTS  AVERAGED 
YEAR          |:a:4M!X     i:8g:5MIX 


I 
£ 
3 
4 
5 
6 
7 


5E 


6 

8 


123 
114 
88 

16 


5000 


4000 


o 

-  ? 

i  £     3000 
ui  4 
K    3 
t-   O 
«/>   <O 


10     \fl 

"=>    O 

a.  z 


ZOOO 


1000 


234 
AGE   IN    YEARS 


86 


mixture  of  crushed  and  uncrushed  fragments  of  gravel. 
The  mineral  composition  of  the  coarse  aggregate  varied 
considerably.  The  prevailing  types,  however,  were 
trap,  slate,  quartzite,  and  sandstone.  The  fine  aggre- 
gate in  general  was  clean  and  of  good  quality  and  well 
graded.  The  concrete  as  a  whole  was  fairly  dense,  and 
only  in  comparatively  few  cases  gave  evidences  of  hav- 
ing been  mixed  with  a  large  excess  of  water.  Average 
results  of  compression  tests  of  the  concrete  averaged 
.  according  to  mix,  age,  and  class  of  pavement  are  shown 
in  Table  26  and  are  plotted  in  the  diagram  on  Plate 
XXXIV.  Averaged  by  routes  the  results  are  shown 
in  Table  27.  The  strength  of  the  concrete  is  very 
nearly  constant  for  all  pavement  classes,  and,  with  the 


tested  showed  crushing  strengths  of  2,190,  2,020,  and 
1,685  pounds  per  square  inch — much  lower  than  the 
general  average.  An  inspection  of  all  cores  showed  the 
presence  of  considerable  dirt  in  the  sand  which  may  be 
the  cause  of  the  low  strength  obtained. 

In  Orange  County,  Section  B,  of  route  2,  four  cores 
(serial  Nos.  13, 14, 15,  and  16)  were  taken,  two  of  which 
broke  during  the  drilling  operation.  The  other  two 
cores,  however,  showed  strengths  considerably  over 
3,000  pounds  per  square  inch,  although  the  broken  con- 
crete indicated  that  the  sand  contained  considerable 
dirt.  The  other  cores  tested  from  Orange  County,  Sec- 
tion B,  showed  strengths  averaging  2,600  pounds  per 
square  inch. 


CRUSHED   CORE  AFTER   TEST. 


exception  of  class  A,  the  average  for  1:2:4  concrete 
for  the  various  classes  is  higher  than  for  the  1 :  2£ :  5. 
The  general  average  for  both  1 :  2| :  5  and  1:2:4  con- 
crete decreases  with  age  with  the  exception  of  1:2:4 
concrete  at  four  years  and  1 :  2£ :  5  concrete  at  five 
years.  In  the  case  of  1:2:4  concrete  only  six  speci- 
mens were  tested  at  the  age  of  four  years,  which  may 
account  for  the  comparatively  high  results.  In  gen- 
eral there  seems  a  slight  tendency  for  the  concrete  to 
decrease  in  strength  with  age.  This  general  tendency 
follows  also  within  the  various  pavement  classes,  al- 
though there  are  several  exceptions. 

REMARKS  ON  TESTS  OF  CORES. 

Individual  results  in  compression  considerably  lower 
than  the  general  average  were  noted  in  the  following 
cases : 

Section  C,  Los  Angeles  County,  route  2 :  In  this  sec- 
tion three  cores  were  secured  after  six  trials ;  the  other 
three  cores  crumbled  during  drilling.  The  three  cores 


In  Stanislaus  County,  Section  A,  route  4,  cores  17  and 
18  gave  strengths  of  2,550  and  2,510  pounds  per  square 
inch,  respectively.  The  concrete  after  failure  indicated 
a  rather  fine  sand.  The  concrete  was  also  more  porous 
than  the  general  average. 

In  Merced  County,  Section  C  of  route  4,  serial  No. 
27,  showed  a  crushing  strength  of  2,065  pounds  per 
square  inch.  The  only  distinguishing  characteristic  of 
this  core  was  that  it  showed  a  very  small  percentage  of 
coarse  aggregate — 36  per  cent. 

In  Madera  County,  Section  A  of  route  4,  cores  53  and 
54  gave  crushing  strengths  of  1,690  and  1,470  pounds 
per  square  inch.  There  were  no  unusual  characteris- 
tics about  this  concrete  to  account  for  the  low  strength 
obtained.  It  is  possible,  however,  that  in  this  one  case 
the  oil  skin  top  was  allowed  to  remain  in  place  during 
test,  which  would  account  for  the  low  results. 

In  Glenn  County,  Section  A  of  route  7,  cores  62,  63, 
65,  and  68  showed  considerably  lower  strength  than 
the  average,  or  about  2,100  pounds  per  square  inch. 


87 


There  were  no  unusual  characteristics  of  the  con- 
crete, however,  which  would  indicate  the  reason 
for  the  low  strength,  except  that  the  presence  of 
alkali  crusts  raises  the  question  as  to  possible  injury 
to  the  concrete  by  alkali  in  either  the  wet  subsoil  or  in 
the  mixing  water.  Other  cores  on  Glenn  County,  Sec- 
tion A.  showed  strengths  averaging  3,000  pounds  per 
square  inch. 

The  general  high  average  quality  of  the  concrete  is 
indicated  by  the  fact  that  out  of  a  total  of  481  samples 
tested  only  1  per  cent  gave  values  for  crushing  strength 
less  than  2,000  pounds  per  square  inch,  and  only  8  per 
cent  less  than  2.500  pounds  per  square  inch.  The  gen- 
eral average  of  all  1:2:4  specimens  is  3,640  pounds  per 
square  inch,  and  of  all  1 :  2£ :  5,  3,370  pounds  per  square 
inch. 

Since  specimens  were  of  different  heights,  it  was 
impracticable  to  test  standard  size  specimens.  To  ob- 
tain some  idea  of  the  effect  of  height  of  specimen  on 
the  crushing  strength,  30  special  cores  were  drilled 
from  class  A  pavement,  route  2,  Santa  Barbara,  Sec- 
tion B,  1 :  2£ :  5  concrete,  four  years  old.  These  cores 
were  tested  as  follows : 

Four  at  3£  inches  in  height. 

Five  at  4  inches  in  height. 

Five  at  4^  inches  in  height. 

Five  at  5  inches  in  height. 

Five  at  6  inches  in  height. 

The  results  are  given  in  the  column  headed  "  Ob- 
M-rved  values  "  in  Table  28.  flowing  comparative  com- 
pression tests  of  concrete  check  cores.  It  will  be  noted 
that  except  in  a  very  general  way  there  is  no  relation 
between  height  of  specimen  and  the  crushing  strength.13 
These  values  could,  therefore,  not  be  used  in  deriving 
a  law  for  correcting  the  strengths  obtained  on  the  rou- 
tine specimens. 

To  correct  the  observed  values  of  crushing  strength 
for  varying  height  of  specimen,  the  comparative  results 
obtained  by  a  committee  of  the  American  Concrete  In- 
stitute on  "  Specifications  and  Methods  of  Tests  for 
Concrete  Materials  "  were  used.14  All  values  for  crush- 
ing strengths  given  in  the  following  tables,  as  well  as 
all  individual  results  noted,  have  been  corrected  accord- 
ing to  methods  given  in  the  above  report,  and  are  the 
equivalent  crushing  strengths  which  would  be  obtained 
on  cylinders  4|  inches  in  diameter  by  9  inches  in  height. 
The  "  corrected  values  "  in  the  comparison  table  indi- 
cate that  after  eliminating  the  effect  of  height  of  speci- 
men there  still  remains  a  considerable  variation  in  the 
strength  of  concrete,  even  when  the  specimens  are  taken 
from  a  relatively  small  pavement  area. 

a  Doubtless  the  actual  variation  in  tlie  quality  of  the  concrete  In 
different  spots  In  the  pavement  was  greater  than  the  variation  caused 
by  the  difference  in  height  of  tested  specimen. 

14  Report  of  this  committee  is  given  on  page  422  of  the  October-Xo- 
rember  (1914)  edition  of  the  Journal  of  the  American  Concrete  In- 
stitute. 


TABLE  25. — Shotting  per  cent  of  coarse  aggregate  in  concrete 
cores  by  planimeter  measurement. 

PERCENTAGE  OF  COARSE  AGGREGATE. 


Route. 

!:::4mix. 

l:2}:5mix. 

Remarks. 

2. 

48    (4) 

50  (28) 

k          odd         hmd 

4 

50  (17) 

4-     '•'• 

7 

49  (11) 

VI    .•/' 

14 

50  (12) 

53  (10) 

Do 

Average.;      50  (44)       49  (150) 


Figures  in  parentheses  indicate  number  of  specimens  averaged. 

Average  variation  between  measurements  of  two  sides  of  core  about  3  per  cent. 

Average  variation  between  measurements  of  check  cores  about  5  per  cent. 

TABLE  26. — Shoicing  average  compression  tests  of  concrete 

averaged  by  mix,  age,  and  class  of  pavement. 

MIX  1 :  2J  :  5. 


Class  of 

J 

Lgein  years. 

Average  by 

pavement. 

3 

4 

5 

6 

!         7 

classes. 

A... 

4,085   (2) 

1  3,780   (11) 

3460    (30) 

3,390  (27) 

•a  o-*5    (4\ 

B... 

3,040    (4) 

3,660    (40) 

3  540    (30) 

3  310  (15) 

C 

3,370   (30) 

3  160   (29) 

3*120  (20) 

o'-un   u\ 

D  

3,240    (2) 

3,090    (25) 

3,650   (12) 

2990    (4) 

E  

4,360    (4) 

3,070     (8) 

3,780     (7) 

3,210    (8) 

3  520    (27) 

F  

2,980     (9) 

3,660     (6) 

2  9SO  (14) 

3  190    (6) 

Average, 
by  years. 

3,755  (12) 

3,390  (123) 

3,450  (114) 

3,220(88) 

3,180  (16) 

3,370  (353) 

MIX  1:2:4. 


Age  in 

years. 

Average  by 

1 

2 

4 

5 

classes. 

A... 

3,470   (6 

3,560(12) 

2  940  (2) 

B... 

3,740  (24 

3,650  (14) 

3  080  (61 

C  

3  950   (6 

3,490  (17) 

D... 

4430    (1 

3,460  (13) 

4  440  (6) 



E... 

4,060    (9 

3,130   (6) 

F  

3)890    (6 

Average  by  years..     3,810(52)       3,500(62),      4,440(6)        3,045(3)1    3,640(128) 


NOTE.—  Figures  in  parentheses  indicate  number  of  tests  averaged. 
Results  are  equivalent  values  for  specimens  4}  inches  in  diameter  by  9  inches  high. 

TABLE  27.  —  Shoicing  average  compression  tests  of  concrete  aver- 
aged by  mix,  route,  and  class  of  pavement. 

Class 

Route-            pave- 
ment. 

Mir. 

Mix. 
Route. 

1:2:4        1  :  2J  :  5 

1:2:4 

1  :  2J:  5 

1        A  

3,635    (2)  .. 

2               4  020    (2) 

3,250    (24) 
3,695    (18) 
3,245    (33) 
3,430    (22) 
3,730    (12) 
3,270    (15) 

Average  

B.... 

4,365    (2) 

3,650  (16) 
4,440    (7) 
4,110  (14) 
3,555    (4) 
3,390    (4) 

c....: 

D. 

3,030    (2)  

E  

4,465    (5)     4,560    (4) 
4,905    (2)  ..       . 

4,140  (11)     4,495    (6) 

3,890(47) 

3,435  (124) 

3      

A.. 

3,  190    (2)      3,  170  (12) 
4,260    (8)     2,795  (12) 

3  77S     «V> 

4  3,470(14) 
3,290  (14) 
3,940    (1) 
2,815    (2) 
3,065    (4) 

3,320    (19) 
3,280    (34) 
3,010    (24) 
3,245      (4) 
2,850      (2) 
3,065    (12) 

Average  .  . 

B  

c 

D  4)736    (I) 

F   .. 

4,042  (10)      3,790  (31) 

i    3  385  (35) 

3,  1S5    (95) 

3,465    (13) 
3,360    (23) 
3,  150    (13) 
2,  785    (12) 
3,  180      (6) 
2,690      (4) 

5 

A 

7.. 

X 

Avenge  

B  
C  
D.... 

4,020    (2)      4,410    (4) 
3,910    (4)     3,225    (5) 
3  395    (2) 

3,  080    (4) 
2,335    (2) 

E  

F  

2,985    (2) 

3,945    (6)     3,580  (13)  2,830    (6) 

3,  180    (71) 
4,130      (3) 

14 

A 

3,580    (1)    15.   . 

B... 

C  
D  
E  
F... 

3,090    (7)     3,815    (4) 
3  230    (4) 

3,380      (1) 
3,485      (2) 
3,615      (2) 

3  255    (2) 

3,160  (13)     3,760    (5) 

3,745      (8) 

Figures  in  parentheses  indicate  number  of  specimens  averaged. 

NOTE. — Results  are  equivalent  values  for  specimens  4$  inches  in  diameter  by  9 
inches  high. 


88 


GRADED  ROAD.  ROUTE  3  SHASTA  COUNTY. 


TABLE  28. — Table  showing  comparative  compression  tests  of 
concrete  check  cores.1 


Height  of  specimen 
when  tested 
(inches). 

Crushed  strength 
(pounds  per 
square  inch). 

Height  of  specimen 
when  tested 
(inches). 

Crushed  strength 
(pounds  per 
square  inch). 

Observed 
values. 

Corrected 
values. 

Observed 
values. 

Corrected 
values. 

35 

4,940 
5,940 
4,325 
5,545 

2,980 
3,580 
2,600 
3,340 

5.0  

3,940 
3,750 
3,450 
4,920 
3,920 

3,150 
3,000 
2,760 
3,940 
3,140 

Average  

5,190 

3,125 

3,995 

3,200 

4.0  

6,380 
4,000 
6,040 
5,650 
5,270 

3,630 
2,700 
4,080 
3,820 
3,560 

6.0.                .  .  .  . 

5,420 
3,930 
3,910 
5,230 
3,890 

4,710 
3,420 
3,400 
4,550 
3,380 

5,150 

3,560 

4.5 

4,475 

3,890 

6,175 
4,690 
4,540 
4,535 
5,040 

4,680 
3,550 
3.440 
3,440 
3,820 

Average  

4,995 

3,785 

i  See  note  under  table  27,  p.  87. 

NOTE.— Results  under  "corrected  values"  are  equivalent  values  for  specimens  4j 
inches  in  diameter  by  9  inches  high. 

Specimen  cores  were  taken  from  class  A  pavement  on  route  2,  Santa  Barbara 
County,  Section  B,  1 :  2i  :  5  concrete,  age  4  years. 

GRADE,  ALIGNMENT,  AND  LOCATION. 

Nearly  all  the  graded  and  unpaved  section  of  the 
main  routes  built  by  the  commission  were  carefully  in- 
spected with  respect  to  location  features.  Such  features 
were  also  specially  investigated  on  selected  paved  roads. 
These  location  inspections  covered  particularly  route 
14  in  Contra  Costa  County  (Eckley  to  Martinez),  route 
7  in  Solano  and  Yolo  Counties,  route  1  from  Sausalito 
to  Willits,  and  route  4  in  Los  Angeles  County,  also 
route  3  from  Sacramento  to  the  Oregon  line.  In  addi- 
tion location  features  were  also  examined  in  connec- 
tion with  all  field  inspections  made  to  check  the  pre- 


liminary pavement  classification.  Grade  and  alignment 
in  all- cases  were  particularly  studied  and  with  respect 
to  (a)  present  traffic  conditions,  (?;)  topography,  and 
(c)  right-of-way  limitations. 

No  attempt  was  made  to  classify  location.  Much  of 
the  road  inspected  is  above  criticism.  There  follow  a 
few  examples  of  location  features  that  demand  notice. 

Contra  Costa,  lli-R  (Ecldey -Martinez}. — On  this 
section  are  short  radii,  blind  curves,  and  excessive  rise 
and  fall.  Probably  more  than  a  mile  of  distance  could 
have  been  eliminated  in  the  four  easterly  miles. 

Solano  7  and  Yolo  7  (Benicia-Sacramento). — There 
are  some  locations  on  this  road  that  indicate  too  close 
an  adherence  to  the  old  rights  of  way,  notably  between 
Fairfield  and  Vacaville.  North  of  Dixon  are  two  right 
angle  turns  in  order  to  follow  section  lines,  and  this  is 
repeated  north  of  the  Yolo  County  line. 

Route  1  (£>ausalito-W!/'!ts). — From  Sausalito  to 
Larkspur  the  road  presents  excessive  curvature  and  im- 
paired vision.  The  alignment  appears  to  be  worth 
straightening  to  make  this  trunk  line  less  slow  and  less 
dangerous.  From  Cloverdale  to  the  north  line  of 
Sonoma  County  (1-A),  a  sweeping  revision  is  indicated 
as  very  desirable  in  order  to  eliminate  both  blind  curva- 
ture and  the  switch-back  at  stations  29  and  50  and  to 
avoid  the  development  from  station  185  to  the  end  of 
the  project  by  a  heavy  cut  in  the  saddle  near  station 
202.  On  Section  A  in  Mendocino  County  a  route  of  less 
than  7  per  cent  grades  might  have  been  found  along 
the  Russian  River  between  Cloverdale  and  Hopland, 
but  heavy  mud  slides  would  have  been  encountered. 
On  Section  D  in  Mendocino  County  a  new  line  in  cer- 
tain places  is  under  construction  to  eliminate  curvature, 
and  heavy  grade,  and  such  work  could  advantageously 
be  continued  in  other  places. 


89 


POOR  ALIGNMENT.     1    MENDOCINO   D. 


Los  Angeles,  4-B,  4-C,  and  Jt-D. — This  is  the  Ridge 
Road  over  the  Tehachapi  Mountains  and  is  built  on 
higher  standards  than  other  mountain  roads.  Curves 
of  less  than  100-foot  radius  have  seldom  been  allowed 
and  the  vision  has  been  improved  by  cutting  the  inside 
banks  to  within  3  feet  of  grade.  The  road  is  paved  20 


the  light  of  present  conditions,  should  have  been  made 
easier.  Some  of  the  blind  curves  from  the  summit  north 
of  Redding  and  toward  the  Pitt  River  bridge  occur 
in  relatively  steep  grades.  The  good  location  so  gen- 
erally obtains,  however,  that  it  serves  to  emphasize  the 
inconsistency. 


GRADED  ROAD.  ROUTE  3  SHASTA  COUNTY. 


feet  wide  and  the  curves  carefully  superelevated.    Some        In  several  instances,  notably  on   route  3   in  Butte 
straightening  could  have  been  done  and  some  of  the    County,  the  floors  of  small  bridges  are  noticeably  rough 


alignment  improved  as  work  progressed. 


but  serve  as  a  pavement.     The  connection  with  the 


Route  3,  from  Sacramento  to  the  Oregon  line,  pre-    adjacent  pavement  is  often  quite  uneven,  and  it  would 


sents  much  excellent  location,  and  the  elimination  of 
grade  crossings  in  Division  II  is  specially  commend- 
able. There  are.  nevertheless,  many  curves  which,  in 


appear  possible  to  eliminate  this  condition  by  lowering 
the  floors  of  bridges  and  carrying  the  pavement  con- 
tinuously across. 


90 


ECONOMIC  AND  OTHER  STUDIES 


GENERAL  ECONOMIC  FEATURES. 

California,  the  second  largest  State,  had  in  1910  a 
population  of  2,377,549  and  ranked  twelfth.  The  1920 
census  figures  indicate  the  present  population  as  3,426,- 
536.  The  increase  is  44  per  cent.  In  1910  only  36  per 
cent  of  the  people  were  classed  as  rural,  so  the  popula- 
tion was  largely  in  cities  and  towns. 

The  topography  in  general  may  be  characterized  as 
one  great  interior  valley  and  numerous  small  valleys,  all 
surrounded  by  the  Coast  Eange  and  the  Sierra  Nevada 
and  Siskiyou  Mountains.  The  Sierra  Nevada  Moun- 
tains are  highest  in  the  southwest,  between  Tulare  Lake 
and  Owens  Lake,  and  on  to  Nevada.  The  northern 
counties  are  generally  mountainous.  These  features 
are  shown  to  a  distorted  vertical  scale  in  the  frontis- 
piece. 

The  main  valley  is  subdivided  into  the  Sacramento 
River  Valley  in  the  north  and  the  San  Joaquin  River 
Valley  in  the  south.  There  are  numerous  small  agri- 
cultural valleys,  but  these  two  valleys,  with  the  Santa 
Clara  Valley  south  of  San  Francisco  and  the  valley 
lands  south  of  the  Tehachapi  Mountains,  are  the  prin- 
cipal agricultural  lands  of  the  State. 

The  agricultural  products  of  the  State  were  valued 
by  the  1910  census  at  $153,111,013;  they  have  since 
greatly  increased,  and  in  1920  may  be  conservatively 
estimated  at  $539,000,000.  The  acreage  of  improved 
farm  land  in  1910  was  approximately  11,389,894. 

The  value  of  mineral  and  timber  products  in  1910 
was  estimated  at  $63,382,454.15 

There  are  about  1,000  miles  of  coast,  and  besides  the 
harbor  of  San  Francisco  there  are  harbors  at  Monterey, 
Los  Angeles,  San  Diego,  Eureka,  and  Crescent  City. 
Commerce  with  the  Orient,  Australia,  New  Zealand, 
and  South  America  is  extensive,  and  is  supplemented 
by  coastwise  shipping  and  European  cargoes  through 
the  Panama  Canal.  The  bank  clearings  at  San  Fran- 
cisco for  August,  1920,  were  $645,480,714.  The  State 
ranks  eighth  in  exports. 

The  climate  of  California  is  characterized  by  the  vir- 
tual absence  of  snow  or  frost  except  in  the  mountains. 
There  is  considerable  winter  rainfall  in  the  northern 
counties,  particularly  on  the  coast.  In  San  Francisco 
the  average  rainfall  for  normal  years  is  22.27  inches. 
This  precipitation  occurs  largely  in  the  interval  Octo- 
ber 15  to  March  15.  In  Sacramento  the  average  rain- 
fall is  20.09  inches  for  normal  years,  in  San  Diego, 
10.01  -inches.  The  summers  in  the  big  valleys  are  hot, 
with  unbroken  sunshine. 


11  These  figures  are  compiled  from  reports  of  the  U.  S.  Census,  of  the 
State  controller,  State  commission  of  horticulture  in  cooperation  with 
U.  S.  Bureau  of  Crop  Estimates,  annual  reports  California  Development 
Board,  statistical  reports  California  State  Board  of  Agriculture,  etc. 


Railroad  transportation  in  the  State  is  adequate,  and 
is  furnished  by  the  Southern  Pacific  from  the  Oregon 
line  straight  through  the  great  Sacramento  and  San 
Joaquin  Valleys  and  over  the  Tehachapi  Pass  to  Los 
Angeles,  thence  through  the  San  Bernardino  and  Impe- 
rial Valleys  to  Yuma,  Arizona.  The  main  line  east  also 
connects  San  Francisco  with  Sacramento  and  Reno, 
Nevada,  and  the  coast  route  traverses  the  Santa  Clara 
and  Salinas  Valleys  to  Los  Angeles.  The  Sante  Fe 
enters  the  State  from  the  east  at  Needles,  and  crosses 
the  fruit  belt  around  San  Bernardino,  thence  across  the 
Tehachapi  Pass,  and  down  the  San  Joaquin  Valley  to 
Sacramento  and  San  Francisco.  A  branch  runs  to  Los 
Angeles  and  San  Diego.  The  State  is  also  crossed  by 
the  Western  Pacific  and  the  Salt  Lake  roads,  and  there 
are  smaller  roads,  including  the  Northwestern  Pacific 
through  the  Sonoma  Valley  north  of  San  Francisco, 
the  San  Diego  and  Arizona,  connecting  San  Diego  and 
the  Imperial  Valley  with  the  coast,  and  various  electric 
interurban  lines. 

There  are  numerous  motor  truck  freight  lines  and 
autobus  passenger  stage  lines  which  are  described 
below. 

MOTOR  VEHICLES— GENERAL.1' 

/The  California  Highway  Commission  is  directed  by 
law,  as  previously  mentioned,  to  expend  one-half  the 
net  motor- vehicle  registration  receipts  for  maintenance 
and  improvement  of  State  highways.17 

The  commission  is  also  authorized  to  issue  special 
written  permits  for  loads  in  excess  of  those  permitted 
by  the  motor  vehicle  law,  to  proceed  over  State  high- 
ways or  bridges,  and  also  to  reduce  the  maximum  per- 
missible loads  on  particular  highways  and  bridges  un- 
der special  conditions. 

The  commission  is  also  charged  with  the  duty  of  pro- 
viding forms  upon  which  county  supervisors  shall  re- 
port expenditures  from  their  one-half  of  the  net  motor- 
vehicle  fund  returned  to  the  respective  county  funds. 
With  reference  to  these  county  expenditures,  the  com- 
mission states  in  the  first  annual  report  that  the  forms 
prepared  were  somewhat  complicated  and  the  returns 
extremely  crude.  There  was  an  indication  that  the 
vehicle  money  was  merged  with  other  county  funds  and 
it  seemed  to  be  a  general  practice  to  divide  the  money 
into  five  parts — one  for  each  supervisor's  district — and 
thus  to  dissipate  the  revenue. 

There  has  been  a  rapid  and  large  increase  in  motor- 
vehicle  registration  and  use  in  California  since  1907 

"  A  summary  of  motor-vehicle  legislation  in  California  will  be  found 
in  Appendix  C. 

17  Also  for  maintenance  and  improvement  of  roads  in  State  parks 
under  certain  conditions. 


91 


and  corresponding  increase  in  the  motor-vehicle  fund. 
This  progress  of  registration  and  revenue  is  shown  in 
Table  29. 

TABLE  29. — Approximate   total  motor-vehicle  registration   and 
revenues  in  California,  6j/  years.1 


Years. 

Total. 

Trucks 
only. 

Increase, 
by  years. 

Total 
license 
receipts. 

>  10  020 

1907 

14,061 

4,031 

1908 

19,561 

5,510 

1909 

28,633 

9,072 

1910 

44,122 

15,489 

1911 

60  779 

16,657 

1912                                           .  . 

91,194 

30,415 

1913 

118,716 

28,522 

1914               

123,516 

6,156 

3,800 

$1,  343,  i  16 

1915            

163,795 

8,189 

40,279 

2,059,683 

1916 

235,440 

68,645 

2,192,790 

1917 

310,916 

75,476 

2,846,030 

1918                   

370,800 

13,953 

53,884 

3,540,306 

1919 

4!'.i   4'^i 

128,663 

4,468,721 

1920                   

'545,000 

«  32,  555 

51,537 

»  4,  922,  250 

1  Xotal  automobiles  and  trucks  from  the  records  of  the  secretary  of  state,  1907-1913, 
and  from  those  of  motor  vehicle  department  for  1914-1920.  Trucks  only  from  other 
sources  except  for  years  1918  and  1920. 

>  Prior  to  April  8,  1907. 

'  Estimated  for  calendar  year  1920  from  registered  automobiles  and  trucks  to  July 
3, 468,211.  and  to  Sept.  24,  507,255,  and  exclusive  of  8,107  U.  S.  Government  and  other 
motor  vehicles  exempt  from  license  fees. 

4  Trucks  to  Sept.  24  and  with  solid  tires  only.     About  6,200  trucks  additional  with 

neumatic  tires  estimated  June,  1920,  are  included  in  the  column  headed  "Total." 

'  Estimated  at  1919  average  per  vehicle. 

The  progress  of  registration  is  also  shown  by  Plate 
XXXV,  which  also  presents  for  comparison  a  curve 
of  total  registration  progress  in  the  entire  United 
States  since  1906. 

In  Plate  XXXVI  is  shown  the  relative  progress  of 
motor-vehicle  registration  in  the  five  leading  States,  in- 
cluding California,  from  1914  to  1919. 

TRAFFIC   COUNTS. 

Traffic  counts  were  made  to  determine  in  a  short  in- 
terval (a)  an  index  to  the  usefulness  of  the  State  high- 
ways to  the  people  of  the  State  and  (&)  a  measure  of 
the  relation  of  travel  to  the  condition  of  the  constructed 
roads. 

The  principal  traffic  counts  were  taken  during  an 
interval  equivalent  to  one  day  of  16  consecutive  hours, 
from  6  a.  m.  to  10  p.  m.,  at  103  stations  between  August 
7  and  October  14.  Supplementary  counts  were  also 
taken. 

To  check  the  positions  selected  for  the  103  traffic  sta- 
tions for  the  principal  one-day  count,  the  California 
State  Highway  Commission  independently  selected 
187  traffic  stations  which  were  compared  with  the  103 
stations  already  selected,  and  the  latter  were  found 
sufficiently  in  accord  with  the  State  selections  so  that 
no  extensive  changes  were  required.  The  positions  of 
the  stations  used  are  shown  on  the  State  map,  Plate 
XXXVII.  The  traffic  blank  used  is  shown  in  Appen- 
dix E. 

Traffic  diagrams  of  the  State  routes  were  prepared 
from  the  record  of  these  counts.  These  diagrams,  which 
are  shown  in  Appendix  G,  were  made  with  a  hori- 
zontal scale  of  20  miles  to  the  unit,  and  the  total  num- 


bers of  vehicles  of  all  kinds  counted  at  the  various 
stations  were  plotted  as  ordinates.  The  ordinates  were 
subdivided  to  show  (a)  the  number  of  all  motor  trucks, 
(b)  the  two-way  division  of  travel  (either  north  and 
south  or  east  and  west) . 

It  will  be  seen  that  most  of  the  traffic  stations  were 
near  towns  and  thus  their  result  "  peaks "  of  travel 
corresponding  roughly  to  the  size  of  the  town  and  inci- 
dentally showing  the  relative  importance  of  local 
travel.  It  is  noteworthy  also  that  the  flow  of  traffic 
both  ways  tends  to  balance.  The  sum  of  the  areas  be- 
neath the  total  traffic  curve  gives  the  approximate  total 
number  of  vehicle-miles  for  a  16-hour  day,  counted 
between  August  7  and  October  14  on  the  system  of 
California  State  highways.  This  total  is  2,582,201 
vehicle-miles  and  about  seven-tenths  occurs  on  the 
State-constructed  paving. 

This  daily  figure  represents  summer  traffic  when  the 
movement  of  agricultural  produce  and  tourist  traffic 
may  be  assumed  to  be  highest.  On  the  other  hand,  it 
omits  excess  Sunday  traffic  and  all  night  traffic  from  10 
p.  m.  to  6  a.  m.  It  is  also  based  on  the  "  traffic  curve," 
which  is  a  combination  of  straight  lines  which  shape 
tends  to  reduce  the  total  vehicle-miles  near  centers. 
This  summer  interval  extends  roughly  from  June  1  to 
November  1.  Using  the  total  daily  traffic-miles  as 
2,500,000  for  this  interval  of,  say,  150  days  only,  results 
in  a  total  of  375,000,000  vehicle-miles.18  For  the  re- 
mainder of  the  year  another  index  traffic  count  is  re- 
quired. These  figures  as  stated  neglect  all  special  oc- 
casions night  traffic,  and  extra  Sunday  traffic,  which 
tend  to  increase  them,  rainy  days,  etc.,  which  affect  this 
increase. 

The  resulting  average  of  the  different  kinds  of  traffic 
for  one  equivalent  16-hour  week  day  throughout  the 
State  is  shown  in  the  following  table : 

Table  showing  average  16-hour  week  day  traffic  at  10S  stations. 


Type. 

Average 
vehicles. 

Percent 
of  total 
traffic. 

Percent 
of  total 
trucks. 

472 

34.10 

674 

48.50 

31 

2.20 

73 

5.30 

42.40 

41 

3.00 

23.70 

28 

2.00 

16.20 

29 

2.10 

16.80 

32 

2.70 

2 

.10 

1.10 

1  387 

100  00 

100.00 

173 

Trucks,  class  1  :  Less  than  1  ton  with  pneumatic  and  less  than  J  ton 
with  solid  tires. 

Trucks,  class  2  :  One  to  2$  tons  with  pneumatic  tires  and  |  to  1J 
tons  with  solid  tires. 

Trucks,  class  3  :  Three  to  five  tons  with  pneumatic  tires  and  2  to  3 
tons  with  solid  tires. 

Trucks,  class  4 :  Five  tons  plus  with  pneumatic  tires  and  3  tons 
plus  with  solid  tires. 

a  This  figure  is  supported  by  the  estimated  gasoline  consumption  of 
22,000,000  gallons  per  month  by  motor  vehicles.  At  10  miles  per  gallon 
for  five  months,  if  one-third  of  the  resulting  motor-vehicle  mileage  is  on 
the  State  highway,  there  results  367,000,000  vehicle-miles. 


92 


PLATE    XXXV. 


S3JLV1S  Q31INO 


(O 

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tf) 

U) 

1 

o 


tr 
O 

u. 


O 


oc 
2 

(9 

UJ 

Ct 

U 

_i 
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tr 
o 

o 

z: 


VINHOJHVO 


93 


PLATE   XXXVI. 


!     I 


z 


2    3    z 

X      <.      LJ 
000. 


<n 

K 


LJ 

I 

(9 


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z 

o 
b 

tc 

H 

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cr 
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S310IH3A 


94 


PLATE    XXXVII. 


ODT1JXK  MSP 

CAUFORNIA 

•TRAFFI  ^STATIONS  • 
LOCATION  AMD  DESIGNATIONS 

NOVEMBER 

1920  * 


V 


95 


From  the  traffic  diagrams  it  is  apparent  that  the  duty 
of  the  State  highways  is  preponderantly  to  carry  motor 
vehicles — horse-drawn  traffic  is  actually  only  2.7  per 
cent  of  the  average  daily  traffic  at  the  103  stations. 

There  is  a  uniformly  large  increase  in  total  traffic  on 
Sundays.  The  ratio  of  the  average  16-hour  week-day 
total  count  to  the  corresponding  average  16-hour  Sun- 
day count  is  approximately  1  to  1.7. 

The  average  distribution  of  Sunday  traffic  is  shown 
for  16  stations  in  the  following  table : 

Table  showing  average  16-hour  Sunday  traffic  at  16  stations. 


Type. 

Average 
vehicles. 

Percent 
of  total 
traffic. 

Percent 
of  total 
trucks. 

Light  automobiles  

833 

36.8 

Heavy  automobiles     

1,282 

56.6 

Busses  

29 

1.3 

Trucks,  class  1  

62 

2,7 

50.5 

Trucks,  class  2  .  .  .. 

18 

.8 

14.6 

Trucks,  class  3  

10 

.4 

8.1 

Trucks,  class  4  

12 

.5 

9.7 

Horsfi-drawn  vehiHefi 

21 

.9 

17.1 

Extraordinarily  heavy  

Total  of  all  vehicles  

2,267 

100.0 

100.0 

Total  of  trucks  only  

123 

The  results  are  shown  plotted  in  Plate  XXXIX  for 
the  two  portions  of  the  State  designated.  In  this  figure 
is  also  indicated  the  interval  within  which  traffic  counts 
occurred.  From  this  diagram  it  is  at  once  seen  that  the 
motor-truck  traffic  counts  were  taken  during  such  period 
of  the  year  that  they  probably  represent  more  than  the 
average  daily  market  hauling. 

TRUCK  QTTESTIONNAIBES. 

A  questionnaire  was  sent  out  during  the  month  of 
August  to  approximately  21,000  owners  of  trucks  with 
solid  tires.  From  this  questionnaire  4,707  replies  were 
received,  of  which  364  were  blank  and  1, 495  were  oper- 
ating more  than  95  per  cent  within  cities.  An  addi- 
tional 1,078  could  not  be  used  because  of  defective  data. 
There  remained  1,930  replies  which  could  be  identified1 
from  owners  using  one  or  more  of  the  State  highways. 
There  follow  tables  showing  answers  to  various  ques- 
tions in  this  questionnaire  : 


The  daily  motor-truck  traffic  throughout  the  State,  as 
determined  by  the  actual  count  for  equivalent  16-hour 
days  at  the  103  official  stations,  was  12.48  per  cent  of 
the  total  traffic.19 

The  total  daily  motor-truck  miles  over  the  California 
State  highways  was  then  computed  separately  from  the 
actual  traffic  count.  This  daily  truck  mileage  is  the 
total  of  the  areas  below  the  motor-truck  curve  shown  in 
the  traffic  diagrams,  or  286,375  truck-miles.  The  re- 
sult does  not  apply  throughout  the  year,  because  the 
interval  of  the  count,  between  August  7  and  October  14, 
fell  within  the  limit  of  the  "  peak-load  "  interval  on  the 
California  highway  system  for  hauling  of  agricultural 
products. 

This  "  peak-load  "  interval  for  agricultural  products 
was  determined  separately  for  a  group  of  30  counties 
north  of  the  Tehachapi  Mountains  and  for  a  group  of 
8  counties  of  southern  California,  all  traversed  by  the 
State  highways.  The  data  were  obtained  from  the  re- 
port of  the  State  board  of  equalization  for  1918  and 
from  field  investigations.  The  field  investigations  were 
made  by  an  engineer  and  resulted  in  satisfactory  de- 
termination of  the  entire  interval  of  market  hauling 
of  9  separate  groups  of  crops  and  of  the  "  peak  in- 
terval." With  these  separate  crop-marketing  intervals 
and  the  total  yields  from  the  report  of  the  board  of 
equalization  and  from  comprehensive  road  maps  for 
each  county  it  was  possible  to  make  a  fairly  satisfac- 
tory estimate  both  of  the  "  peak  interval "  and  the 
"  peak  load  "  in  tons  which  it  is  the  duty  of  the  Cali- 
fornia State  highways  to  carry.  It  was  found  that 
apparently  about  23  per  cent  of  all  agricultural  prod- 
ucts is  hauled  for  some  distance  over  State  highways. 


Capacity 
of  trucks 
in  tons. 

Average 
distance 
operated 
daily. 

Average 
weight 
cargo 
(pounds'). 

Average 
advan- 
tageous 
speed 
(miles 
per  hour). 

Average 
mileage 
per 
gallon 
of  gas. 

I 

31.0 

1,007 

18.0 

14.7 

! 

29.8 

1,462 

17.6 

11.1 

i 

44.7 

1,963            13.9 

11.4 

11 

34.0 

3,591 

15.7 

9.5 

2 

53.9 

4,624 

14.5 

8.6 

M 

47.4 

5,776 

13.2 

7.8 

r 

44.8 

6,992 

12.6 

7.8 

3J 

47.7 

8,353 

9.9 

5.9 

14 

56.6 

9,800 

11.8 

5.1 

»5 

60.8 

10,950 

11.1 

4.9 

»5| 

69.0 

14,000 

12.4 

4.1 

<6 

59.8 

14,222 

12.8 

4.7 

'6i 

42.5 

12,500 

12.5 

5.5 

»r 

38.0 

13,888 

9.6 

5.2 

1 

1  From  an  average  of  91  replies. 
»  From  an  average  of  130  replies. 
«  From  an  average  of  5  replies. 
'  From  an  average  of  9  replies. 
*  From  an  average  of  2  replies. 
«  From  an  average  of  7  replies. 

The  commodities  reported  as  hauled  by  motor  truck 
in  the  available  answers  to  the  questionnaire  are  shown 
in  the  table  below : 

What  trucks  haul — From  questionnaires. 

FARM  TO  MARKET. 


Class. 


Number 


Garden  truck  

312 

1,444,885 

Fruits  of  various  kinds  

438 

1,763,225 

Cereals,  hay,  feed  

329 

1,729,910 

Cotton.'..  "  

2 

4  500 

Meat  and  live  stock  

95 

>•-  y.vj 

Dairy  products  

131 

461,128 

Poultry  and  eggs  

11 

18,800 

18 

45,750 

Fuel  wood  

81 

315,850 

Totals  

1,417 

6,073,998 

AWAY  FROM  MARKET. 


u  There  is  found  to  be  considerable  truck  traffic  before  6  a.  m. 
traffic  wag,  therefore,  not  included  in  the  standard  16-hour  day. 


This 


Groceries,  provisions,  and  general  merchandise  

187 

631,900 

Dry  gnnrti  and  laundry   ,    ",  ,    ,        .    .        

7 

10,250 

103 

267,900 

Building  materials  and  machinery  of  all  kinds 

500 

2,777,150 

16 

46,400 

Ice  ."  

51 

173,700 

Soft  drinks,  etc  ... 

44 

164,300 

Freight....'.  

32 

107,820 

Gftsolinp  flnd  njl  

45 

211,700 

Totals  

985 

4,391,120 

96 


PLATE   XXXVIII. 


TRAFFIC   ON   STATE   HIGHWAYS. 


97 


PLATE   XXXIX. 


TONS  OF  AGRICULTURAL  PRODUCTS 


75712—22- 


98 


PLATE   XL. 


oy0 


DIAGRAM  SHOWING  TOTAL  NUMBER  OF  TRUCKS  IN  FOUR  CLASSES  REPORTED  BY 
QUESTIONNAIRE  AND  RELATION  OF  PERCENT  IN  EACH  CLASS  TO  CORRESPOND- 
ING PERCENT  FROM  TRAFFIC  COUNT. 


99 


The  data  in  this  table  are  of  little  value  in  respect  to 
information  as  to  the  total  commodity  hauling  by  motor 
truck  in  California,  since  they  are  compiled  from  only 
2,402  answers.  They  probably  indicate  (a)  the  rela- 
tive amounts  of  various  commodities  hauled,  and  (&) 
the  ratio  of  inbound  to  outbound  loads,  which  is  1.44 20 ; 
(c)  the  arithmetic  average  load  of  about  2.1  tons;  (d) 
the  relative  number  of  trucks  hauling  agricultural 
products  and  merchandise,  etc. 

In  order  to  develop  further  information  on  the  opera- 
tion of  motor  trucks  and  to  gage  the  effectiveness  of 
the  truck  questionnaire,  there  are  shown  in  Plate  XL 
the  numbers  of  the  various  classes  of  trucks  reported 
in  answer  to  the  questionnaire,  together  with  the  rela- 
tion of  the  percentage  of  such  trucks  in  the  various 
classes  to  the  corresponding  percentage  computed  from 
the  traffic  census.  In  each  case  the  classification  of 
trucks  is  that  used  in  taking  the  traffic  census. 

PASSENGER  BUS  LINES. 

Organized  automobile  stage  truck  transportation 
originated  in  California  and  promises  to  develop  into 
a  necessary  and  large  public  service.  Rail  and  electric 
transportation  systems  are  vitally  interested,  and  regu- 
latory and  control  legislative  action  was  early  essential. 

By  legislative  act  approved  May  10,  1917  (amended 
May  13,  1919),  the  railroad  commission  of  the  State  of 
California  was  given  "the  supervision  and  regulation 
of  the  transportation  of  persons  and  property  for  com- 
pensation over  any  public  highway  by  automobiles, 
jitney  busses,  auto  trucks,  stages,  and  auto  stages." 
Under  this  law  the  railroad  commission  fixes  rates, 
classifications,  and  rules  and  regulates  the  accounts, 
service,  and  safety  of  such  transportation  companies. 
This  jurisdiction  superseded  conflicting  jurisdiction  of 
any  municipal  or  county  authority.  Carriers  operating 
over  a  regular  route  between  fixed  termini  must  secure 
a  permit  from  municipal  authorities  through  whose 
territory  they  operate,  provided  they  were  not  operat- 
ing prior  to  May  1,  1917.  Carriers  operating  other 
than  wholly  within  the  incorporated  limits  of  a  city  or 
town  must  secure  a  certificate  of  public  convenience 
and  necessity  from  the  railroad  commission.  Rules 
and  regulations  Avere  established  by  the  commission 
governing  fares  and  rates,  time  schedules,  filing  of 
bonds,  and  safety  of  operation  of  stages  and  trucks. 

The  applicant  for  a  permit  to  operate  a  stage  or 
truck  line,  having  secured  a  permit  from  the  municipal 
authorities,  must  file  a  statement  setting  forth  the  ter- 
mini and  description  of  the  route;  time  schedule  and 
fares;  description  of  equipment,  list  of  officials  of  the 
company,  etc.,  and  names  of  stage  or  truck  lines,  steam 


railroads,  and  electric  railways  operating  between  the 
points  to  be  served. 

Upon  filing  of  the  application,  a  public  hearing  is 
fixed,  and  the  applicant  and  existing  transportation 
lines  affected  are  asked  to  present  evidence  and  argu- 
ments for  and  against  granting  the  application.  If  it 
is  found  that  public  necessity  and  convenience  make 
the  proposed  line  advisable,  and  that  the  applicant  is 
financially  able  to  render  the  service  and  otherwise 
capable,  the  railroad  commission  grants  permission  to 
operate  the  line. 

The  powers  of  the  railroad  commission  relative  to 
operation  of  the  lines  are  far-reaching.  Reports  upon 
the  manner  of  operation,  character  of  service,"  assets 
and  liabilities,  numbers  of  persons  or  tonnage  carried, 
receipts  and  disbursements,  and  other  related  data  are 
required  and  rules  and  regulations  for  operation  are 
issued. 

When  the  original  act  became  effective  a  number  of 
auto  stage  and  truck  lines  were  actively  operating,  in 
most  cases  with  but  a  single  truck,  driven  by  the  owner. 
There  was  no  law  specifically  regulating  State  au- 
thority and  the  business  was  practically  without  sys- 
tem. Irregularities  and  abuses  were  common.  The 
entire  auto  stage  business,  and  to  a  somewhat  lesser 
degree,  the  truck  business,  has  now  become  stable  and 
systematized.  Lines  operating  under  the  most  favor- 
able conditions,  or  best  able  to  adapt  themselves  to  the 
new  law,  continue  to  operate  under  the  authority  of  the 
commission. 

Under  the  sanction  of  the  State  and  with  the  protec- 
tion accorded  against  unfafr  and  unnecessary  competi- 
tion business  has  improved  and  expanded  enormously, 
and  promises  to  grow  with  even  greater  rapidity  with 
the  extension  and  development  of  the  State  high- 
ways. 

A  systematic  study  of  these  passenger  bus  and  freight 
truck  lines  was  made  with  special  reference  to  the  use 
of  the  State  highways.  A  summary  of  the  passenger 
bus  information  is  presented  in  Table  30. 

Of  the  103  lines  54  have  schedules  involving  two  to 
five  round  trips  per  day  between  termini.  The  least 
frequent  schedule  authorized  by  the  State  railroad  com- 
mission is  that  of  one  trip  weekly  on  the  line  from  San 
Francisco  to  Portland,  Oreg.  (786  miles,  of  which  163 
are  on  the  State-paved  highway).  The  most  frequent 
is  54  round  trips  per  day  between  Los  Angeles  and 
Santa  Ana,  a  distance  of  36  miles  (of  which  25  miles 
is  over  State  highway  No.  2) . 

As  far  as  practicable,  bus-line  routes  or  division 
points  on  routes  are  so  located  that  the  distance  can  be 
covered  in  not  to  exceed  one  day.  In  47  per  cent  of  the 


31  Not  restricted  to  any  given  time  or  part  of  year  in  the  questionnaire.         *>  Deviation  from  schedule  is  not  permitted. 


100 


routes  this  distance  ranges  from  25  to  99  miles,  which 
permits  one  or  more  round  trips  per  day.  The  average 
length  for  the  103  lines  is  59  miles. 

A  large  number  of  the  companies  cooperate  to  make 
practicable  the  purchase  of  through  transportation  over 
connecting  lines.  The  longest  through  trip  possible  by 
such  arrangement  is  that  from  El  Centre  via  San 


Diego,  Los  Angeles  and  San  Francisco  to  Portland, 
Oreg.,  a  distance  of  1,488  miles. 

There  is  a  tendency  to  combine  ticket  offices  and 
establish  common  starting  places  or  union  stations  at 
Oakland,  Los  Angeles,  Fresno,  Bakersfield,  etc. 

Plate  XLI  shows  pictures  indicative  of  the  pas- 
senger motor-bus  business. 


TABLE  30. — Summary  of  bus-line  data — lines  in  whole  or  in  part  traversing  State  highways. 


State  highway  route  No. 

Number 
of  bus 
lines 
operated. 

Total 
distance 
between 
termini. 

Total  miles 
paved  State 
highway 
between 
termini. 

Number  of 
trips 
each  way 
between 
termini 
daily. 

Car-miles 
between 
termini 
daily.' 

Car-miles 
on  paved 

State 
highway.1 

Number  of 
through 
passengers 
daily.' 

Passenger- 
miles 
between 
termini. 

Passenger- 
miles  on 
paved  State 
highway. 

1  1 

(      i 

99.25 

31.3 

6 

199.5 

187.8 

(<) 

(4) 

(<) 

2.                          

\      3 
/      3 

67.  25 
41 

49.7 
32.5 

58 

784.5 
477 

607.5 
377 

484 
0) 

23,746 
(«) 

18,901 

0) 

3 

\           30 
3 

1,918 
36.75 

1,217.75 
21 

(') 
73 

31,860.5 

778  5 

22,  960.  5 
435 

9,  342.  25 
700 

519,  649 
7  635 

389,  103 
4  260 

4  ' 

/            1 

12.75 

12.5 

4 

51 

50 

0) 

(<) 

(<) 

5 

\           » 

607.  75 
278.  75 

347.  75 
176.  75 

214 
140 

10,  370 
5,637 

7,632 
9  883 

2,009 
1  310 

90,504 
62  178  5 

64,  761 
43  716  5 

6                                  .....:  

1 

14.25 

14.25 

6 

85.5 

85  5 

24 

342 

'342' 

7                      .... 

2 

926 

180.5 

2.14 

207 

57 

9 

1  206 

299  5 

8                    

1 

36 

6.5 

6 

216 

39 

12 

432 

78 

a                  

4 

171.  25 

123.  75 

82 

3,  789.  5 

3  135  5 

1  027 

50  456  25 

44  794  25 

10                       

1 

60.75 

S 

4 

243 

'32 

24 

1  458 

192 

11.                

3 

82 

72 

22 

651 

574 

208 

4  890 

4  273 

12 

!                 A 

5 

5 

12 

60 

60 

w 

M 

(<) 

14                               . 

I             6 
/            3 

498.  25 
36.5 

271.  75 
25 

22 
3 

1,907 
476 

1,025 
430 

136 
(') 

12,  179 
0) 

6,500 
(') 

18 

1            V 

168 
93 

86 
15 

159 

2 

2,  159.  2 
186 

1,538.4 
30 

908 
70 

20,  231 
6  510 

10,608 
1  050 

22 

1 

172 

7 

2 

344 

14 

12 

2  064 

'   84 

26 

1 

193 

5 

.85 

165 

4  28 

g 

1   158 

30 

Combinations  of  15  of  above  routes 

1 

14 

11 

8 

112 

88 

(<) 

(S 

(*} 

Do 

7 

60S.  75 

355.5 

52 

4,461  5 

2  801  5 

3X3 

33  230 

21  755 

Total.  ... 

3  103 

6,074 

3,075 

900 

65  220 

46  046 

16  664 

837  869 

610  747 

'  One  line  from  Fresno  to  Bakersfield  not  included  (total  distance,  109i  miles — paved  State  highway,  106}  miles);  record  lost  in  mail.  In  this  summary  table  one  car 
per  scheduled  trip  is  taken  as  the  basis  for  car-mile  calculations,  but  on  many  runs  two  or  more  busses  are  regularly  dispatched  and  as  many  as  10  on  special  occasions.  Flrxi- 
biuty  of  service  is  one  of  the  main  claims  of  the  motor-stage  operators. 

*  Estimated  average  number  through  passengers;  local  passengers  estimated  as  15  per  cent  of  through  traffic. 

3  Three  lines  out  of  Eureka  not  included  for  want  of  data  (total  miles,  25;  paved  State  highway,  18J  miles). 

« Incomplete. 


Below  are  given  three  additional  tables  of  data  re- 
garding the  passenger  motor-bus  business. 

Daily  trips  between  termini. 


Passenger  capacity  of  equipment,  scheduled  trips,  etc.,  of  some 
of  the  larger  bus-line  companies: 


Number  of 
trips  dally. 

2  or  less 

Number  of 
lines  operating. 

15 

3  to  10 

54 

11  to  20 

-  _          _                                             12 

21  to  40 

14 

41  to  60 

4 

61  to  80 

2 

80  or  more  . 

_           2 

Total 


103 


Number  of  bus  lines  of  various  length. 


Length 
In  miles. 

0  to  4 
5  to  9 
30  to  14 
15  to  24 
25  to  49 


100  to  199. 
200- 


Number  of 
lines  operating. 

8 

15 

11 

14 

26 

22 

3 

1 


Total 


103 


Dis- 

Num- 
ber 
of 

Pas- 
senger 
capac- 

Total 
capac- 

itv 

Daily 

trips 
each 

tance 
be- 
tween 

Termini. 

High- 
way 
route 

cars. 

ity. 

1L>  . 

way. 

ter- 

No. 

mini. 

Miles. 

40 
38 

IS 
14-22 

720 
674 

62 
108 

36 

36 

Los  Angeles-Santa  Ana  
do 

I 

27 

23 

621 

102 

31 

San  Francisco-Palo  Alto  

2 

4 

22 

12 

16 

616 

32 

67.75 

Los  Angeles-Redlands  

9 

24 

14 

1 

,23 

10 

19 

5 

15 

378 

48 

43 

Oakland-San  Jose  

5 

6 

11 

3 

8 

1 

8 

3 

11 

195 

26 

77.5 

Stockton-Oakland 

5 

2 

14 

7 

18 

13 

15 

195 

52 

117.5 

Sacramento-Merced  

4 

4 

7 

22 

14 

|      186 

36 

23 

San  Fernando-Los  Angelas.. 

9 

17 
20 

8-11 
8 

170 
160 

10 
6 

127.5 
134.5 

Los  Angeles-Bakers  field  
San  Diego-Los  Angeles  

4 
2 

20 

8 

160 

6 

134.5 

Los  Angeles-San  Diego  

2 

5 

18 

\      US 

14 

52.  25 

Santa  Rosa-Sausalito. 

1 

2 

14 

/ 

16 

,-7 

112 

2 

93 

Merced-Yosemite 

IS 

1 

2 
5 

19 
14 
11 

102 

6 

51.5 

Sacramento-Placerville  

11 

I 

i 

101 


PLATE    XLI. 


AUTO   STAGE   DEPOT,   LOS   ANGELES. 


SAN    FRANCISCO— MARTINEZ   STAGE. 


102 


^HEIGHT  LINES. 

A  special  investigation  was  made  of  the  motor  truck 
freight  lines  licensed  under  the  State  railroad  commis- 
sion and  as  one  result  there  is  presented  Plate  XLII, 
which  shows  the  reported  number  of  motor  trucks  of 
the  several  existing  classes  as  returned  by  this  investiga- 
tion and  also  as  determined  by  replies  to  the  question- 
naire to  all  owners  of  solid-tired  trucks.  Additional 
commercial  motor-truck  traffic  information  is  shown  in 
Appendix  F. 

FIELD  WEIGHING. 

In  addition  to  the  above  indicated  studies,  219  motor 
vehicles   (and  5  horse-drawn  vehicles)   were  weighed 
in  the  field  as  shown  by  the  following  table: 
Weighing  data. 


Place. 

Date. 

Number 
of 
vehicles. 

Gilroy  

Sept.  25,  27,  1920  

86 

French  Camp  

Sept.  29,  1920  
Sept.  30,  1920  . 

46 
40 

Yuba  City  
Santa  Rita  

Oct.  2,  1920  
Oct.  4,  5,  1920  

24 
28 

Total 

224 

The  results  of  the  weighing  are  shown  below.  The 
truck  capacities  there  indicated  conform  to  the  classi- 
fication used  in  the  field  traffic  counts  since  no  heavy 
pneumatic-tired  trucks  came  to  the  scales. 

Summary  of  result  of  field  iceiyhing. 


Kind  of  vehicle. 

Num- 
ber. 

Average 
gross 
weight 
in 
pounds. 

Light  autos,  motor  cycles,  Ford,  Chevrolet,  Saxon,  Dodge,  and 

13 

1  924 

23 

3  828 

4 

14 

2  091 

42 

4  708 

44 

10  034 

33 

14  640 

33 

4  863 

12 

7  461 

6 

5  838 

1 

6  290 

Total 

225 

SPEED  MEASUREMENT. 

Measurement  of  speed  of  motor  vehicles  was  made  in 
the  field  with  measured  distance  and  stop  watches  at 


four  stations,  as  follows :  Modesto,  Gilroy,  Saugus, 
Richmond.  These  stations  were  chosen  from  the  traffic 
count  and  where  total  travel  was  not  excessive. 

The  results  of  this  study  with  respect  to  speed  of  the 
various  classes  of  vehicles  are  shown  in  the  following 
table : 

Speed  of  motor  vehicles. 


'Type.1 

Miles  per 
hour. 

Number 
observed. 

24.3 

990 

26.1 

1,177 

29.7 

113 

23.2 

153 

19.9 

61 

Trucks  class  3                          

16.5 

41 

13.7 

83 

1  The  classes  of  trucks  refer  respectively  to  those  adopted  in  the  traffic  census. 
GENERAL. 

There  was  found  to  be  a  certain  typical  hourly  varia- 
tion throughout  the  16-hour  day  in  all  traffic  through- 
out the  State.  This  average  hourly  variation  in  per 
cent  of  total  daily  traffic  for  a  week  day  as  determined 
from  111  week-day  counts,  taken  at  101  stations,  is 
shown  in  Plate  XLIII,  together  with  the  corresponding 
hourly  variation  of  Sunday  total  traffic  from  56  partial 
and  complete  Sunday  counts  at  37  stations. 

The  corresponding  hourly  variation  in  truck  traffic 
only  is  similarly  shown  for  a  week  day  in  Plate  XLIV. 
This  curve  indicated  a  considerable  truck  traffic  before 
6  a.  m.  The  figure  of  12.48  per  cent  for  total  truck 
traffic  is^  therefore,  subject  to  a  plus  correction,  as  the 
percentage  of  total  traffic  prior  to  6  a.  m.  is  much  less 
than  that  of  trucks. 

There  is  shown  in  Plate  XLV  the  typical  average 
variation  of  total  traffic  during  an  entire  week  based 
on  all  counts  taken.  In  Plates  XLVI  and  XLVII 
are  shown  respectively  the  relative  decrease  of  horse- 
drawn  traffic  and  the  relative  increase  in  motor-truck 
traffic  as  determined  from  traffic  counts  in  Kern  and 
Los  Angeles  Counties. 

A  summary  of  various  truck  data  from  various 
sources  is  shown  in  Table  31. 


TABLE  31. — Summary  table  showing  truck  traffic  data. 
[From  traffic  census,  field  weighings,  and  questionnaire.] 


Class  of  trucks. 

From  traffic 
census. 

Weighted  average 
speed,  miles  per 
hour. 

Weighted     average    weight 
from    field    weighings    in 
pounds. 

Average  cargo 
weight,  in  pounds. 

Average  length 
of  haul,  in  miles. 

Weighted 
daily 
average 
number 
of  trucks. 

Per  cent 
of  total 
daily 
vehicles. 

From 
speed 
count. 

From 
question- 
naire. 

Front. 

Rear. 

Total. 

Field 
weigh- 
ings. 

Ques- 
tion- 
naire.' 

Field.' 

Weighted 
average, 
question- 
naire.8 

Less  than  1-ton  pneumatics,  less  than  J-ton  solid 

73 
41 
28 
29 
2 

5.3 
3.0 
2.0 

2.1 
0.1 

23.2 

19.9 
16.5 
13.7 

(18 
14.7 
14.1 
110.8 

697 
1,674 
3,227 
4,751 

i  ,  :W4 
3,034 
6,807 
9,889 

2,091 

4,708 
10,034 
14,640 

(') 
1,684 
4,649 
6,989 

1,007 
2,332 
5,970 
9,603 

14 
43.7 
48.6 
73.5 

31 
39.1 
51 
<54.4 

1  to  2$  ton  pneumatics,  f  to  li  ton  solid  

3  to  5  ton  pneumatics,  2  to  3  ton  solid  

5-ton-plus  pneumatics,  3-ton-plus  solid.. 

Extra  heavy  

Total  

178 

12.5 

Weighted  average  

19.4 

14.0 

2,848 

5,810 

8,658 

3,682 

4,324 

48.6 

45.3 

1  From  replies  to  questions  at  the  138  weighings  at  5  stations. 

2  From  2,766  replies  to  21,000  inquiries. 

«  Styles  of  body  too  variable  to  permit  accurate  estimate  of  weight  of  trucks.    Weights  of  all  other  trucks  determined  from  manufacturers'  catalogues. 
<  Twenty  trucks  of  this  class  and  above  5  tons'  capacity  were  reported  by  the  questionnaire,  but  the  data  is  not  included  in  this  figure. 


103 


PLATE   XLII. 


TRUCK  CAPACITY  IN  TONS 
I?       2        2?       3        3^      4 


DIAGRAM     SHOWING    COMPARISON    OF    NUMBER   OF   TRUCKS    OF    VARIOUS    CAPACITIES    REPORTED    ON   QUESTION- 
NAIRES AND   BY  LICENSED   FREIGHT  LINES. 


104 


PLATE   XLIII. 


DIAGRAM 

SHOWING 

AVERAGE  HOURLY  VARIATION  OF  WEEKDAY  TRAFFIC  AT  101  STATIONS 

AND  CORRESPONDING 

x 

A.M.  6-7 
7-8 

AVERAGE  HOURLY  VARIATION  OF  SUNDAY  TRAFFIC  AT  37  STATIONS 

\^ 

X. 

8-9 

xx 

N 
S 

\ 

9-10 

10-11 
M    \\-\Z 

S0v 

i  / 

y 

P.M.  12-1 
1-2 

UJ 

r          3-3 

ii 

\ 

V 

>^h 

> 

I  \ 

3-4 

\ 

^ 

4-5 
5-6 

\ 

\ 

r) 

6-7 
7-8 
8-9 
9-10 

C 

^~ 

/ 

rt. 

^' 

y> 

jj, 

</ 

tf' 

)                   2                  4                   6                   8                   10 

PERCENTAGES  OF  TOTAL  FOR  THE  DAY 

105 


PLATE    XLIV. 


A.M.  6-7 

7-8 
8-9 
9-10 
10-11 
M.    ll-ia 
RM.I2-I 

2-3 

- 

^ 

^y 

> 

\ 

C 

ti 

5 

1 

3-4 
4-5 
5-6 
6-7 
7-8 
8-9 
9-10 

C 

P 

\ 

\ 

^J 

X 

C 

3                                         4                    6                    8                    10 

PERCENTAGE  OF  AVERAGE  DAILY  TOTAL 

DIAGRAM 

SHOWING 

AVERAGE  HOURLY  VARIATION  OF  WEEKDAY  TRUCK  TRAFFIC  AT  101  STATIONS 

106 


PLATE   XLV. 


22 


eo 


hJ 
Ul 


18 


hi 

o    16 


o 

cc 
u 

Q. 


12 


(0 


o 
z 
o 


I 

to 

u 


a 

(O 

LJ 


LJ 


O 
CO 

oc 


Q 


DIAGRAM 

SHOWING 

VARIATION  OF  TOTALTRAFFIC  DURING  THE  WEEK 
BASED  ON  883  WEEKDAY  COUNTS 


107 


PLATE   XLVI. 


KERN  COUNTY 

AVERAGE  NUMBER  OF  TRUCKS  AND  HORSE  DRAWN  VEHICLES 
PASSING  FIVE  STATIONS 


150 


v> 


O 

UJ 

ut    100 

O 

K 


50 


<A 


^& 


V^ 


X^f 

X 


v> 


(O 


& 


s? 


,_V£H/CXEs 


09 


YEARS 


108 


PLATE    XLVII. 


350 
300 
250 

10 
Ul 

5 

{^/ 

o 

/ 

£ 

0 

pi 

bJ 

CO 

1  50    ( 
100 
50 

^ 

/      / 

> 

/ 

V 

V>x 

p 

( 

f                X^ 
X 

\, 

.  VEHICLES    , 

> 

*                         10                         <O                          r~                         co                          o 

5                     o>                     5i                     5>                     2                     2? 

YEARS 

LOS  ANGELES  COUNTY 

AVERAGE  NUMBER  OF  TRUCKS  AND  HORSE  DRAWN  VEHICLES 

PASSING  NINE  STATIONS 

109 


VIOLATIONS  OF  STATE  LAW. 

In  connection  with  truck  traffic  the  State  highway 
commission  states  in  the  first  biennial  report: 

The  present  State  highways  are  being  subjected  to  constant 
abuse  by  too  heavily  loaded  trucks  and  other  agencies. 

The  statute  books  of  California  already  contain  sufficient 
legislation  to  regulate  and  penalize  these  violations,  but  the  de- 
linquency lies  in  the  enforcement  of  these  laws. 

The  commission  is  of  the  opinion  that  the  most  effective 
policing  of  these  evils  will  result  from  the  establishment  of  a 
State  motor  police  limited  both  in  numbers  and  authority  under 
the  jurisdiction  of  the  motor  vehicle  department,  who  could  ap- 
prehend both  motor  vehicle  offenders  and  persons  injuring  the 
improved  highways  of  the  State. 

The  chief  engineer  states  in  the  same  report — 

that  in  the  northern  part  of  the  Sacramento  Valley  a  new  dif- 
ficulty presents  itself  in  the  rapidly  increasing  use  of  the  land 
for  rice  culture.  *  *  *  In  November  and  December  of  this 
year  (1918)  the  State  highway  has  been  damaged  seriously  by 
motor  trucks  hauling  rice.  All  the  trucks  carry  loads  in  ex- 
cess of  their  rated  capacity,  and  it  is  probable  that  in  all  such 
cases  the  loading  on  the  rear  wheels  per  inch  of  width  of  tire 
in  contact  with  the  pavement  is  in  excess  of  the  limit  of  800 
pounds  fixed  by  the  motor  vehicle  act.  It  would  be  folly  to  di- 
rect or  discourage  all  trucks  and  tractors,  but  they  should  con- 
form to  the  legal  requirements  of  the  vehicle  act,  which  are  rea- 
sonable and  were  enacted  in  1917  at  the  suggestion  of  the 
Motor  Truck  Dealers'  Association.  If  such  excessive  loads  are 
to  be  permitted  the  State  must  spend  much  money  to  strengthen 


the  roads,  and  why  should  such  selfishness  be  permitted?  Why 
should  not  the  reasonable  provisions  of  the  vehicle  act  be 
enforced  ? 

The  inspection  force  of  the  motor  vehicle  department 
is  composed  of  nine  men  working  under  the  direct  su- 
pervision of  one  chief.  Each  man  is  assigned  to  a  par- 
ticular district,  and  the  secretary  of  the  motor  vehicle 
department  reports  that  it  is  impossible  for  these  men 
to  enforce  all  the  provisions  of  the  motor  vehicle  act. 
Their  paramount  duty  is  the  collection  of  license  fees. 
The  enforcement  of  the  law  regarding  weight  limit  and 
speed  limits  has  been  left  almost  entirely  to  the  local 
officers  throughout  the  State.  The  State  officers  work 
in  conjunction  with  the  local  police,  and  where  a  case 
arises  the  traffic  officer  of  the  district  is  called  upon  to 
do  the  prosecuting.  Violations  of  the  motor  vehicle  act 
or  convictions  that  are  carried  to  the  court  are  re- 
ported to  the  motor  vehicle  department.  The  abstract 
of  the  court  records  so  filed  from  July  22,  1919,  to 
October  18,  1920,  shows  a  total  of  33  convictions  of 
violations  of  the  law;  with  respect  to  flanges  (4), 
weight  per  inch  width  (19),  number  of  trailers  (2), 
special  permits  (3),  and  with  respect  to  unspecified 
provision  of  the  section  governing  all  these  points  (5). 
The  fines  range  from  $100  for  flanges  to  $4  for  opera- 
tion without  special  permit,  and  in  the  case  of  excess 
weight  per  inch  of  width  from  $50  to  $10. 


DISCUSSION 


BOND  ISSUES,  SYSTEMS  DESIGNED,  AND  GENERAL 
POLICY. 

The  system  of  4,500  miles  laid  out  in  1896  by  the  old 
State  bureau  of  highways  reached  every  county  seat  and 
traversed  the  main  valleys.  It  was  doubtless  of  value 
as  a  guide  to  the  selection  of  the  system  of  5,560  miles, 
now  building,  and  the  present  system  visibly  reflects 
the  original  one. 

Apparently  the  interval  from  1896  to  1909  demon- 
strated the  futility  of  attempting  to  create  an  adequate 
system  of  State  highways  by  small  special  appropria- 
tions for  selected  roads. 

The  State  highway  bond  issue  of  1909-10  had  been 
preceded  by  an  issue  of  $1,250,000  in  San  Diego  County 
and  of  $3,500,000  in  Los  Angeles  County  and  by  high- 
way-bond issues  in  Eastern  States.  The  deferred  serial 
type  of  bond  chosen  was  in  accord  with  the  best  prac- 
tice, but  the  term  of  45  years  for  the  longest  serial  is 
unnecessary  and  will  require  a  corresponding  excessive 
total  interest  payment.  The  legal  provisions  fixing 
both  the  nominal  interest  and  the  sales  price  proved 
embarrassing  to  the  highway  commission.  There  is 
every  evidence  that  the  bonding  principle  itself  at  this 
period  was  sound. 

The  highways  act  of  1909  created  by  implication  a 
system  of  3,082  miles,  which  was  manifestly  far  in  ex- 
cess of  the  possible  construction  with  the  fund  of 
$18,000,000  provided.  The  influence  of  this  discrepancy 
has  been  far-reaching.  The  State  highway  commission 
stated  in  their  final  report :  "  Notwithstanding  the  ad- 
mittedly impossible  task,  the  commission  endeavored 
by  the  employment  of  every  honorable  expedient  to 
obtain  the  greatest  possible  return  in  roads  for  the 
money." 22 

Actually  1,300  miles,  including  graded  roads,  were 
built  from  proceeds  of  the  first  bond  issue. 

The  system  of  roads  laid  out  under  and  by  the  vari- 
ous laws  is  an  excellent  one,  and  the  portions  built  by 
the  commission  prior  to  January,  1917  (when  the  funds 
of  the  first  bond  issue  were  exhausted),  appear  in  gen- 
eral to  have  been  most  needed.  The  distribution  and 
the  order  of  this  first  construction  may  have  been  con- 
ditioned by  necessary  policy.  Because  of  the  legal  re- 
striction on  the  sale  of  bonds,  it  became  necessary  for 
various  counties  to  buy  the  bonds,  and  naturally  roads 
in  those  counties  which  bought  took  some  precedence. 
Counties  were  also  obliged  to  pay  the  interest  charges  on 


the  funds  used  for  highways  within  their  boundaries — 
some  of  the  poorer  counties  were  not  easily  able  to  do 
this.  In  order  to  make  the  bond  money  go  as  far  as 
possible,  the  commission  also  influenced  the  various 
counties  to  furnish  the  necessary  expensive  bridges  and 
rights  of  way,  which  action  created  some  opportunity 
for  preference  in  construction.  In  addition  to  these  in- 
fluences, which  conditioned  the  distribution  of  construc- 
tion, it  was  doubtless  good  policy  to  acquaint  as  many 
voters  as  possible  with  the  proof  of  the  advantages  of 
improved  roads  by  actual  examples.  The  maps,  Plates 
V  to  XII,  show  the  progress  of  construction  from  year 
to  year.23 

The  success  of  the  initial  policy  of  the  commission 
with  respect  to  type  of  road  and  distribution  of  con- 
struction is  evidenced  by  the  increased  majority  for  the 
second  bond  issue  of  1915,  and  the  still  larger  majority 
for  the  third  issue  of  1919  is  evidence  of  its  continued 
success. 

The  general  policy  of  the  commission,  especially  witli 
respect  to  the  order  of  construction,  in  attempting  to 
carry  out  the  terms  of  the  laws  which  conditioned  the 
sale  of  bonds  and  implied  or  prescribed  excessive  mile- 
age to  be  built,  must  be  judged  by  its  progressive  reac- 
tion on  the  whole  State  rather  than  by  comparing  it 
with  other  alternative  policies  that  may  now  be  ap- 
parent to  a  State  community  enlightened  by  the  benefits 
of  the  improved  roads.  Such  a  possible  alternative 
policy,  for  example,  might  have  given  priority  to  the 
trunk  road  from  Los  Angeles  to  San  Francisco. 

MANAGEMENT. 

The  actual  construction  work  of  the  commission  was 
also  conditioned  by  the  highway  act :  (a)  In  respect  to 
its  permanent  character  and  (b)  by  the  first  implied 
order  for  more  than  three  thousand  miles  of  highway. 

The  commission  obviously  attempted  to  combine  the 
element  of  durability  in  design  with  rapid  extension  of 
mileage.  Although  the  money  was  theoretically  avail- 
able after  the  fall  election  of  1910,  no  construction  was 
started  until  August,  1912.  There  were  also  theo- 
retically sufficient  funds  to  allow  large  planning  of 
the  work,  and  the  commission  took  advantage  of  the 
opportunity  to  conduct  business  on  a  big  scale.  They 
oegan  work  deliberately. 

In  the  fall  of  1911,  with  the  highway  engineer,  they 
made  a  comprehensive  tour  of  the  State  and  estab- 


22  First  biennial  report  of  the  California   Highway  Commission,   Dec.         **  Nearly  all   the   gaps   in  the   1920  map   indicate  pavement   acquired 
81,  1918,  p.  40.  from  the  counties. 

(110) 


Ill 


lished  seven  divisions.  On  the  21st  of  October,  1912, 
they  signed  contracts  with  the  Natomas  Consolidated  of 
California  (a  corporation)  for  500,000  tons  of  crushed 
cobbles  at  45  cents  per  ton,  f.  o.  b.,  and  also  contracts 
with  the  Eussian  River  Gravel  Co.  and  the  Grant 
Gravel  Co.  for  175,000  tons  of  screened  gravel  at  27£ 
cents  per  ton,  f .  o.  b.  These  were  low  figures  for  con- 
crete aggregates,  and  the  commission  states  they 
'•  tended  to  fix  a  low  price  which  had  its  influence  on 
other  producers  of  concrete^  aggregates." : 

Effective  on  October  30, 1912,  the  commission  secured 
from  the  Southern  Pacific  Railroad  Co.  a  local  freight 
tariff  for  commodities  "  consigned  to  and  for  use  by  the 
California  Highway  Commission  "  at  substantially  one- 
lialf  the  prevailing  rates.  These  rates  were  extended 
by  tariff  No.  742-C  one  year  later. 

In  the  purchase  of  cement  the  commission  states : 2* 

Under  unwritten  agreement  the  companies  agreed  with  the 
commission  that  during  the  life  of  the  work  the  price  should 
not  exceed  $1.40  per  barrel  at  the  mills.  This  special  price,  far 
below  the  general  market  price,  was  made  to  encourage  the  use 
of  cement  in  highway  construction. 

The  actual  yearly  purchases  of  cement  to  July  1, 1920, 
with  net  prices,  are  tabulated  below: 


Year. 


Barrels  pur-      Average    cost  at  mill, 
chased.         mill  base.' 


1912                               

142,485.50 

$1.  240 

$176,683.24 

1913                               

242,514.40 

1.309 

217,376.36 

677,790.25 

1.325 

898,403.48 

355,005.50 

1.367 

485,267.31 

1916                                   

110,090.00 

1.371 

150,958.28 

1917                                      

220,794.00 

1.454 

321,061.61 

I91g                                      

221,418.00 

1.621 

359,036.76 

231,737.00 

2.038 

451,270.72 

1920  (up  to  July  1  )  

43,048.00 

2.158 

89,699.56 

2,244,862.75 

1.443 

3,249,780.32 

, 

After  the  first  bond  issue  of  $18,000,000  was  ex- 
hausted, the  cement  companies  felt  that  their  obliga- 
tion should  end. 

When  the  railroads  came  under  national  jurisdiction 
during  the  war  the  preferential  freight  rates,  were 
abolished.  On  account  of  difficulty  of  delivery  due  to 
war  conditions,  which  resulted  in  (valid)  claims  by  the 
contractor  and  required  stock  piling  at  times,  and  due 
to  the  general  rise  in  prices  the  Commission  has  tempo- 
rarily discontinued  to  supply  materials.  They  state 
that  during  the  war  the  work  progressed  with  increas- 
ing difficulty  due  to  high  costs,  open-top  car  embargo, 
lack  of  bidders,  restriction  of  the  Capital  Issues  Com- 
mittee and  the  United  States  Highway  Council,  but  did 
not  stop.  The  totals  of  administration,  engineering. 
and  other  overhead  costs  have  been  presented  in  the  sec- 
tion "Data"  under  the  item  "Work  done"  and  are 
very  reasonable  with  the  possible  exception  of  the  total 
overhead  on  maintenance. 

-'  First  biennial  report,  p.  39. 


STANDABD  PAVEMENT  DESIGN. 

The  standard  design  adopted  for  surface  was  a  con- 
crete "base"  of  4  inches  with  a  three-eighths-inch 
wearing  surface  of  asphaltic  oil  and  pebbles.  The  con- 
crete mix  was  1 :  2£  :  5  and  the  width  was  15  feet,  with 
3-foot  earth  shoulders,  as  shown  in  Plate  XLVIII  and 
XLIX,  type  D. 

Although  the  concrete  surface  was  doubtless  origi- 
nally laid  as  a  base,  only  about  43  per  cent  has  been 
given  the  oil  surface.  The  average  price  in  the  earlier 
years  for  the  4-inch,  1 :  2£ :  5  concrete  including  grading 
and  structures  was  $1.14  per  square  yard  which  was 
remarkably  low.  This  price  was  equivalent  to  about 
$10,000  per  mile  of  completed  15-foot  road  and  com- 
pared very  favorably  with  the  similar  price  of  $1.21 
per  square  yard  for  oil  macadam.  Neither  price  in- 
cludes either  indirect  charges  or  overhead.  The  cor- 
responding average  price  for  the  4-inch,  1:2:4  con- 
crete laid  since  1917  has  been  $1.84,  which  is  also  low. 
The  concrete  pavement  has  probably  produced  a 
smoother  and  more  satisfactory  riding  surface  than  any 
of  the  other  types  incidentally  laid. 

This  concrete  pavement  is  the  thinnest  that  has  been 
extensively  laid  in  any  State,  and  would  have  been  re- 
jected as  too  thin  in  any  State  subject  to  winter  frosts. 
It  is  one  foot  narrower  than  the  minimum  width  of  con- 
crete roads  built  in  most  other  States,  and  it  is  believed 
that  under  present  conditions  it  is  in  general  3  feet  too 
narrow.  The  original  mix  of  1 :  2£ :  5  was  leaner  than 
that  extensively  used  in  other  States  and  the  present 
mix  of  1 : 2 : 4  is  not  as  rich  as  that  used  in  several  States, 
but  it  is  believed  to  be  adequate  for  the  traffic.  In  this 
connection  it  is  to  be  observed  that  California  was  the 
pioneer  State  in  adopting  concrete  as  the  standard  pave- 
ment for  the  State  highway  system. 

The  function  of  the  three-eighth  inch  asphaltic-oil 
wearing  surface  or  "  skin  top  "  has  not  been  completely 
determined.  That  it  is  not  a  necessary  element  of  con- 
struction is  evident  from  a  comparison  of  the  service 
and  condition  of  bare  and  covered  concrete  which  now 
exists.  It  was  probably  considered  that  the  asphaltic- 
oil  top  would  (a)  take  the  wear  of  travel  from  the 
concrete,  (Z>)  protect  the  concrete  base  to  some  extent 
from  impact,  and  (c)  prevent  the  penetration  of  water 
through  such  cracks  as  occurred.  It  has  not  been  ob- 
served that  the  bare  concrete  itself  shows  evidence  of 
wear  by  rubber-tired  traffic,  which  almost  exclusively 
is  now  the  only  kind  of  traffic  to  be  found  throughout 
California.  Trucks  with  solid  tires,  however,  cause 
disintegration  at  open  cracks.  It  is  doubtful  if  a  three- 
eighth-inch  bituminous  layer  materially  lessens  impact. 
A  comparison  of  the  data  presented  in  the 'tables  of 
classification  and  in  the  summary  class  diagrams  will 
show  that  the  condition  of  the  pavement  covered  with 


112 


PLATE    XLVIII. 


113 


PLATE   XLIX. 


-6" 


/0-6- 4- 

* / 5-0' PAVEMENT - 

SLOPE  £  PER  FT. 


-/2-O 


TYPICAL  SECTION -5IDEHILL 

USE  ON  TANGENTS  AND  CURVES  OVER  300 'RADIUS 


CURB  TO  BE 
USED  WHERE 
MECESSARYTO 
PROTECTBANK\ 
FROM  WASH. 


TYPICAL5ECTION  PILL 

USE  ON  TANGENTS  AND  CURVES  OVER  300' RADIUS 


10-6- 


I 5-0" PAVEMENT 
AS  PEP,   TABLE 


-1 2-0" 


TYPICAL'SECTION 

USE  ON  CURVES  UNDER   300'RADIUS  CON  CAVE  TO  CUT 


/2-0- 


-I5'-0~ PAVEMENT 
SLOPE  A3  PER  TABLE 
;jf»yg).'. 


CURB  OH  ALL 
CURVES  HAV/NG 
SLOPEGREATER 


)>»#ifimr>m/ipf> 

TYPICAL  SECTION 

USE  ON  CURVES  UNDER  300' RADIUS  CONCAVE  TO  FILL 


ORWHEN  FtE- 
OU/RED  TO  PRO- 
'ECT5LOPE2. 


TABLE  OF  CROSS  SLOPES 


RADIUS  OF  CURVE 
SO' TO    75' 
75,    -     /OO' 
/OO,    •    ISO', 
ISO'    -    225, 
22  J    •    30O 


SLOPE. 
fr'PERFT. 


'/a' 


TYPICAL  ROAD  SECTIONS 


75712—22- 


114 


asphaltic-oil  top  compares  favorably  with  the  bare 
concrete,  but  it  is  to  be  noted  that  because  of  the  pres- 
ence of  the  asphaltic-oil  top  the  classification  of  the 
concrete  base  beneath  was  made  difficult  and,  in  all 
probability,  was  higher  than  it  would  have  been  had 
the  concrete  base  been  uncovered  throughout.  To  some 
extent  the  asphaltic  top  has  sealed  the  concrete  from 
water  during  the  rainy  periods  and  thus  prevented 
softening  of  the  subgrade,  which  is  important.  It  has 
cost  about  8  to  9  cents  per  square  yard  and  requires 
considerable  repair  and  renewal  and,  under  nonabrasive, 
rubber-tired  traffic,  it  is  doubtful  if  it  serves  a  purpose 
commensurate  with  its  cost,  but  more  study  of  the  ex- 
tent of  subgrade  moisture  protection  is  desirable.  It  is 
more  slippery  in  wet  weather  than  is  bare  concrete. 

The  4-inch  plain  concrete  of  lean  mix  has  proved  in 
places  very  durable.  There  are  580  (distributed)  miles 
built  prior  to  1917  that  are  of  classes  A  and  B.  Under 
adverse  conditions,  particularly  of  soil,  it  is  evident, 
however,  that  a  pavement  of  such  thinness  has  a  very 
low  safety  factor  and  is  inadequate.  Its  use  has  now 
been  abandoned  and  a  minimum  thickness  of  5  inches 
of  reinforced  concrete  is  required.25  The  original  con- 
struction produced  considerable  rough-surfaced  con- 
crete, which,  as  traffic  developed,  doubtless  materially 
increased  impact.  On  the  narrow  15-foot  pavement, 
loads  passing  each  other  necessarily  traveled  close  to 
the  edge.  The  "  crow  foot "  defects  are  doubtless  due 
to  such  travel  of  trucks  whenever  the  conditions  were 
unfavorable.  There  is  little,  if  any,  decisive  evidence 
that  reinforcing  introduced  in  the  4  or  even  in  the  5- 
inch  concrete  (particularly  of  the  triangular-mesh  va- 
riety, see  Plate  LIII)  has  proved  effective  on  adverse 
soils  or  under  combinations  of  adverse  subgrade  and 
traffic.  Nor  will  the  widening  of  a  4-inch  pavement 
to  20  feet  eliminate  the  "  crowfoot "  cracks  which  are 
observed  on  such  width  concrete,  even  in  instances  on 
sandy  soil. 

The  original  concrete  pavement  design,  in  short,  now 
has  little  or  no  factor  of  safety  and  under  unfavorable 
conditions  has  not  withstood  the  internal  stresses  pro- 
duced by  traffic  flexure  and  variations  in  temperature 
and  subsoil  moisture.  It  is  doubtful  if  such  a  safety 
factor  can  be  introduced  without  considerably  increas- 
ing the  mass  of  concrete.  It  appears  that  under  adverse 
soil  condition  there  is  considerable  flexure  with  traffic. 

To  introduce  sufficient  steel  to  prevent  flexure  of  a  4- 
inch  or  even  5-inch  pavement  over  a  shrunken  or  wet 
subgrade,  or  even  a  loose,  sandy  subgrade,  is  probably  a 
doubtful  economy.  The  existing  longitudinal  cracks 
that  are  accompanied  by  any  separation  or  by  "  fault- 
ing "  along  the  crack,  or  by  displacement,  are  evidences 
of  subgrade  displacement  or  settlement  or  uneven  sub- 


grade  shrinkage  as  a  primary  cause.  Such  defects  are 
typical  either  with  a  single  center  crack  or  two  longi- 
tudinal quarter  cracks  (see  Plates  XIX,  XX,  and  LI) 
and  the  soil  moisture  sections  in  Appendix  D  appear  to 
confirm  this  behavior. 

Some  special  treatment  of  adverse  subgrade  soils, 
particularly  of  class  1,  will  be  necessary.  Capillary 
action  and  high  moisture  retentiveness  and  pronounced 
shrinkage  must  be  met.  The  amount  of  admixture  or 
the  thickness  of  protective  layers  of  noncapillary  and 
supporting  soils  is  not  yet  known.  A  flat  subgrade 
might  help  to  a  slight  extent  to  counteract  such  defects 
by  eliminating  some  transverse  tension  due  to  normal 
pressure.  The  crown  of  2J  inches  (see  Plate  XLVIII) 
in  the  present  15-foot  standard  design  may  well  be  re- 
duced to  If  inches  and  with  a  flat  subgrade  and  an 
added  If  inches  maximum  thickness  there  is  an  added 
factor  against  center  longitudinal  cracks. 

By  January,  1917,  the  State  Highway  Commission 
hud  constructed  a  total  of  835  miles  mostly  of  4-inch  by 
15-foot  concrete  pavement.  They  continued  to  build 
the  same  type,  except  that  the  mix  was  increased  to 
1:2:4.  In  the  light  of  the  increase  in  thickness  and 
the  addition  of  reinforcing  steel  rods  in  1920,  it  must 
now  be  inferred  that  the  commission  was  again  in  1917 
governed  in  policy  by  the  necessity  for  increased  mile- 
age. They  say,  with  reference  to  the  second  bond 
issue : 

The  untoward  condition  accompanying  the  World  War  soon 
set  at  naught  the  expectation  of  completing  the  State  highway 
system  with  the  proceeds  of  the  second  bond  issue;  and  the  com- 
mission, for  the  second  time  confronting  an  iniposs  ble  task,  is 
again  forced  to  secure  the  greatest  value  receivable  with  the 
funds  at  its  command. 

This  bond  issue  was  based  -upon  an  estimate  fur- 
nished from  1914—15  figures. 

It  is  to  be  noted  that  the  standard  plans  do  not  pro- 
vide for  widening  the  pavement  on  curves,  although 
some  widening  of  the  "  lime  "  type  has  been  done  subse- 
quent to  construction.  The  cross  sections  are,  in  gen- 
eral, noticeably  "  shallow  "  or  "  tight "  and  require  a 
minimum  amount  of  excavation.26  However,  in  the 
northern  part  of  the  State,  particularly,  the  climate  ap- 
pears to  demand  more  pronounced  drainage  than  has 
resulted  from  the  present  design.  The  sections  do  not 
provide  for  very  pronounced  superelevation,  which  is 
now  frequently  and  successfully  made  one-half  to  1 
inch  to  the  foot  in  many  States.  It  is  believed  that  the 
width  of  the  main  roads  should  be  increased  from  the 
present  width  of  21  to  24  feet  to  a  width  of  from  24  to 
30  feet  (see  Plate  LIII)  except  in  heavy  cuts.  The 
crowns,  as  has  been  noted  above,  could  well  be  reduced 
to  1J  inches  even  on  a  wider  pavement. 


-'Mifneral  Orders  421  and  427,  May  1  and  Sept.  15,  1920,  respectively.          M  Soe  Plate  L. 


115 


PLATE    L. 


DISINTEGRATION   AT   EDGE  AND   TRAVELED   SHOULDERS.     4   KERN   C. 


CROW-FOOT  CRACKING   AND   BREAKING.     4   KERN   B. 


116 


PLATE    LI. 


LONGITUDINAL  CRACK   WITH    FAULTING.     7   SOLANO    D. 


LONGITUDINAL  CRACK    WITH    FAULTING.     7   SOLANO    D. 


117 


PLATE    Lll. 


PITTING   OF  CONCRETE.      1    SONOMA  C. 


'CHECKING"   OF  CONCRETE.     4   KERN    B. 


118 


PLATE    Llll. 


•     DEFECTIVE    PLACEMENT   OF    MESH    REINFORCING    ON    ADOBE.      2   SAN    MATEO    B. 


SHOULDER   WEAR   FROM    INSUFFICIENT  WIDTH.     5   ALAMEDA   A. 


119 


DESIGN  OF  GBADE  ALIGNMENT  AND  SECTIONS. 

Many  miles  of  the  California  State  highways  lie  on 
flat  valley  floors  and  have  excellent  alignment.  There 
are  scores  of  other  miles  of  good  location,  including 
difficult  mountain  roads.  It  is  disappointing  in  the 
valleys,  therefore,  to  find  location  defects  such  as  right- 
angle,  section-corner  turns  and  unnecessarily  quick  re- 
verse curves  in  passing  around  railroad  station  sites 
and  in  the  mountains  and  on,  steeper  hills  to  encounter 
sharp  blind  curves  and  unnecessary  rise  and  fall. 
Compensation  of  grade  has  not  in  all  cases  been  suffi- 
cient to  prevent  exceeding  the  maximum  grade  if,  in 
the  future,  the  radii  are  lengthened. 

It  appears  that  the  defects  in  grade  and  alignment 
are  due  largely  to  a  too  strict  adherence  to  a  standard. 
That  standard  is  not  invariably  economical.  A  bolder 
line  with  considerably  increased  grading  between  Eck- 
lev  and  Martinez,  for  example,  would  probably  not 
have  added  much  to  the  first  cost  and  will  possibly 
ultimately  have  to  be  built,  as  this  is  the  main  route 
from  San  Francisco  to  Sacramento  and  is  now  rather 
dangerous. 

Other  locations  on  hill  and  mountain  roads  evidence 
minimum  standards  that  are  too  low  for  trunk  lines 
under  present  traffic  conditions.  There  are  numbers 
of  curves  of  50  and  60  foot  radii  and  grades  of  7  per 
cent  that  might  have  been  eliminated  or  reduced  at 
slight  additional  cost.  In  a  few  cases  a  radical  change 
in  line,  though  doubtless  involving  added  right-of-way 
> -ii>t>.  would  have  been  a  great  improvement. 

It  appears  that  valuable  land  has  often  been  avoided 
and  that  a  location  that  follows  the  topography  closely 
has  been  the  rule.  These  elements  have  at  intervals  im- 
paired the  alignment  and  grade. 

Although  the  first  report  of  the  commission  states 
that  travel  can  proceed  at  30  miles  per  hour  over  the 
State  highway  pavement,  it  is  not  safe  to  travel  at  that 
speed  at  many  points,  partly  because  of  the  narrow 
pavement  and  lack  of  superelevation,  but  largely  be- 
cause radii  are  too  short.  It  would  appear  that  where 
the  method  of  cutting  the  inside  bank  to  improve  sight 
has  been  adopted,  longer  radii  should  have  Iwen  selected 
in  the  first  design.  In  the  effort  to  economize  in  con- 
struction, it  appears  that  at  times  (for  example,  on 
route  '2.  between  King  City  and  Santa  Barbara)  too 
many  sharp,  vertical  curves  have  been  used  in  order  to 
fit  the  ground. 

SPECIFICATIONS. 

The  State  Highway  Commission  has  until  recently 
adhered  to  the  1912  specifications  with  few  changes. 
These  specifications  appear  to  have  been  rigidly  en- 
forced. The  grading  has  been  neatly  finished  and  the 
subgrade  evidently  well  prepared.  The  original  lean 


concrete  mix  of  1 : 2J : 5  for  a  pavement  should  have 
been  abandoned  sooner,  and  the  permission  of  6  per 
cent  of  the  fine  aggregate,  passing  a  standard  No.  100 
sieve  allows  a  possible  excessive  clay  content.  The  re- 
quirements for  coarse  aggregate,  with  respect  to  size, 
grading,  quality,  and  cleanliness  are.  in  the  light  of 
recent  developments,  somewhat  inadequate.  It  is  be- 
lieved the  specifications  should  also  exclude  the  use 
of  alkaline  or  salt  water  and  permit  larger  aggre- 
gate than  24  inches.  The  originally  required  rough 
finish  has  been  abandoned,  but  the  finish  now  ob- 
tained can  be  improved.  This  rough  finish  was  evi- 
dently for  a  pavement  base,  but  it  shows  through  a 
three-eighths-inch  top  and.  where  not  covered,  has 
doubtlessly  tended  to  increase  impact.  The  old  speci- 
fication for  mixing  until  texture  and  color  were  uni- 
form were  evidently  unsatisfactory  and  have  been 
abandoned  in  favor  of  a  ten-turn  or  one-minute  mix. 
The  requirements  for  curing  by  ponding  or  wet  earth 
are  excellent,  but  some  checking  (see  Plate  LII)  due 
either  to  lax  enforcement  of  this  provision  for  curing 
or  a  too  wet  mix  has  occurred.  The  omission  of  trans- 
verse joints  appears  to  have  been  a  justifiable  innova- 
tion, particularly  in  a  frostless  country,  but  it  is  be- 
lieved there  should  be  exceptions  to  this  practice.  The 
present  requirement  for  concrete  mixture  of  1:2:4  if 
laid  dry,  it  is  believed,  should  produce  a  good  pavement 
for  traffic  preponderantly  rubber  tired,  but  it  is  re- 
marked that  several  States  use  a  richer  mix.  Rein- 
forcement has  not  been  required  until  1920,  but  the 
present  specifications  for  about  42  pounds  of  one-half 
and  three-eighths  inch  steel  rods  in  the  center  plane  per 
100  square  feet,  it  is  believed,  is  excellent.  The  trian- 
gular mesh  reinforcement  used  on  Federal-aid  project 
No.  1  was  a  failure,  due  possibly  to  improper  placement. 
(See  Plate  LIII.) 

With  reference  to  Topeka  specifications  it  is  believed 
that  an  asphaltic  oil  of  penetration  not  exceeding  70 
should  be  specified,  especially  where  the  temperature 
exceeds  100"  F..  and  where  traffic  is  also  unusually 
heavy. 

With  reference  to  oil  macadam,  eastern  experience 
indicates  that  a  surface  treatment  with  the  largest 
quantity  of  oil  specified  (If  gallons)  will  work  into 
ridges  and  lumps  under  traffic.  It  may  be  inferred  also 
that  with  oil  paid  for  by  the  barrel  there  will  be  a  corre- 
sponding tendency  to  use  the  maximum  amount.  Nu- 
merous cases  of  "  viscosity  waves "  are  observable 
throughout  the  State,  although  there  are  many  miles  of 
excellent  oil  macadam  roads. 

It  is  to  be  remarked  that  in  general  the  specifications 
for  concrete  have,  as  shown  by  the  tested  samples,  pro- 
duced good  quality,  and  that  they  have  permitted  an 
economic  use  of  local  material  with  a  minimum  of 
failures. 


120 


FURTHER  DISCUSSION  OF  POLICY  OF  EXTENSION  OF 
MILEAGE. 

It  is  necessary  in  a  critical  analysis  of  the  standard 
design  to  which  the  State  Highway  Commission  has  ad- 
hered for  eight  years  to  make  full  allowance  for  the 
advantage  in  extension  of  service  made  possible  by  its 
use.  That  this  concrete  construction  was  begun  as  a 
base,  however,  must  not  be  overemphasized  since  it  was 
continued  for  694  additional  miles,  notwithstanding 
that  supplementary  surfacing  for  financial  or  other  rea- 
sons was  omitted.  The  design  must  be  judged  as  above 
indicated  with  reference  to  the  necessity  to  extend  serv- 
ice and  with  respect  to  its  continuance  under  the  second 
bond  issue,  and,  in  addition,  with  reference  to  its 
upkeep  and  its  adaptability  to  supplementary  construc- 
tion in  those  cases  where  it  fails,  owing  to  increase  in 
volume  or  intensity  of  traffic  or  other  causes. 

It  is  to  be  remarked  that  the  total  motor-vehicle  reg- 
istration in  1920  is  about  six  times  that  of  1912 — and 
the  total  truck  registration  is  approximately  six  times 
the  1915  figure.  The  State  Highway  Commission  has 
as  yet  taken  no  State-wide  traffic  census. 

That  the  thin,  narrow  pavement  and  close  grading 
enabled  the  rapid  extension  of  very  serviceable  miles  of 
road  is  without  question,  and  that  the  implied  order  in 
the  legislative  act  of  1909  demanded  extension  is  equally 
evident.  Because  the  second  bond  issue  was  voted  in 
1915  and  the  third  in  1919  may,  in  a  sense,  indicate  such 
a  capacity  for  road  financing  by  the  State  as  to  deny 
the  assumption  that  the  State  of  California,  at  any 
time,  was  obliged  to  take  chances  with  thin  pavement 
in  order  to  produce  mileage,  but  it  is  undeniable  that 
the  very  extension  of  the  pavement  developed  sufficient 
sentiment  to  provide  additional  money  in  1915  and 
again  in  1919.  So  it  can  not  be  said  in  1920  in  the  light 
of  the  fact  that  the  great  usefulness  of  the  highway  sys- 
tem is  now  proved,  that  the  State  would  have  -realized 
its  usefulness  and  provided  funds  in  equal  volume  had 
not  the  system  been  extended  as  rapidly  as  it  was  and 
at  some  sacrifice  of  either  temporary  or  ultimate  dura- 
bility to  increased  mileage. 

There  appears,  however,  to  be  a  serious  question  in 
the  light  of  the  fact  that  70  per  cent  of  the  defective 
pavement  of  classes  D,  E,  and  F  occur  on  clay  and 
adobe  soils,  as  to  the  wisdom  of  a  policy  which  con- 
tinued the  risk  of  a  thin  slab  on  such  soils.  It  is  un- 
deniable, however,  that  a  large  mileage  of  the  same  thin 
pavement  and  on  adverse  soil  still  remains  of  classes 
A,  B,  and  C.  We  find,  however,  no  conclusive  final 
demonstration  of  the  best  construction  on  the  adverse 
soils,  and,  in  that  respect,  failure  to  vary  the  design 
on  such  soils  in  the  past  has  postponed  the  solution  of 
this  problem. 

The  concrete  itself  is  shown  by  the  tests  of  the  sample 
cores  and  other  samples  to  be  uniformly  good,  its 


weight  per  cubic  foot  and  absorption  are  practically 
constant,  and  the  amount  of  coarse  aggregate  also.  The 
crushing  strength  averages  well  above  3,000  pounds  to 
the  square  inch.  There  is  raised  by  the  diagram  of 
crushing  strength  by  years  (see  Plate  XXXIV)  a  ques- 
tion as  to  whether  or  not  the  concrete  may  be  slowly 
deteriorating,  but  this  condition  has  not  been  conclu- 
sively proved.  More  study  of  this  phenomenon  is  re- 
quired before  any  conclusion  can  be  reached.  Certainly 
the  slight  indicated  decrease  in  strength  would  not  ac- 
count for  any  of  the  adverse  conditions  found  in  the 
pavement. 

The  question  of  initial  extension  vs.  durability  of 
design  is  further  discussed  under  the  topic  of  eco- 
nomics with  reference  to  the  indicated  operating  in- 
come. There  seems  grave  question,  however,  as  to  the 
decision  in  1917  to  continue  with  the  construction  of 
pavement  of  a  low  factor  of  safety.  By  that  time  it 
would  seem  from  a  study  of  the  summary  tables  of 
class  condition  that  the  behavior  of  the  design  on  ad- 
verse soils  should  have  been  known.  Still  the  change 
to  a  mix  of  1:2:4  appears  to  be  reflected  in  the  class 
condition,  since  only  48  miles  of  the  construction,  be- 
ginning with  1917,  has  gone  into  classes  D  to  F,  inclu- 
sive, while  109  miles  of  construction  prior  to  that  time 
are  in  these  classes. 

The  adaptability  of  the  pavement  laid  to  supple- 
mentary construction  when  it  fails  is  indicated  by 
about  37  miles  of  this  work  already  done  with  30-inch 
concrete  shoulders  and  l|-inch  Topeka  or  other  bitumi- 
nous concrete  surfacing  and  with  second-story  concrete. 
None  of  this  work  is  sufficiently  old  to  prove  its  ultimate 
durability.  At  present  it  appears  to  be  carrying  traffic 
with  success.  The  expense  of  extensive  repairing  of 
certain  sections  prior  to  such  reconstruction  has  been 
necessarily  heavy.  Much  of  the  work  so  far  done  has 
been  on  roads  in  such  sections  that  the  cross  section  has 
not  been  a  serious  item,  but  in  many  places  the  road- 
bed will  have  to  be  widened  before  such  supplementary 
construction  of  shoulders  and  surface  top  can  be  done. 

PRESENT  CONDITIONS. 

With  reference  to  the  classification  adopted  for  de- 
termining the  present  condition  of  concrete  pavement, 
it  is  to  be  noted  that  for  4-inch  concrete  pavement  class 
A  is  a  rather  abnormally  high  type.  Pavement  of 
class  B,  in  the  light  of  the  present  stage  of  develop- 
ment of  concrete  roads,  appears  to  be  a  very  normal 
type  of  concrete  pavement — that  is  to  say,  transverse 
cracks  at  intervals  of  approximately  25  feet  in  a  4-inch 
pavement,  without  joints,  may  be  considered  charac- 
teristic. Pavement  of  class  C,  where  no  separation  or 
faulting  follows  or  accompanies  the  longitudinal  cracks 
in  a  4-inch  slab,  is  not  unexpected.  But  where  faulting 
occurs  along  the  longitudinal  cracks  or  where  there  is 


121 


PLATE    LIV. 


I 


OIL   MACADAM    PAVEMENT.   LOS   ANGELES  COUNTY. 


i 


IL   MACADAM    PAVEMENT.   SACRAMENTO  COUNTY. 


122 


PLATE    LV. 


SUPPLEMENTARY  CONSTRUCTION   SHOWING   NEW   30-INCH    SHOULDERS   BEFORE 
LAYING   OF  TOPEKA   SURFACING.     4   TULARE   D. 


FEDERAL-AID    PROJECT   NO.  24.     SUPPLEMENTARY   CONSTRUCTION    WITH    30-INCH 
CONCRETE   SHOULDERS   AND   TOPEKA   SURFACING.     2   ORANGE   B. 


123 


PLATE    LVI. 


SUPPLEM 


TARY   CONSTRUCTION.      NEW    LAYER   OF  4-INCH    CONCRETE   ON    TOP   OF 
OLD  OILED  CONCRETE.      ROUTE  2.   LOS  ANGELES  COUNTY. 


HEAVY   PATCH    REPAIRING.     7   COLUSA  C. 


124 


a  distinct  separation  of  the  two  edges  of  the  crack,  an 
unusual  condition  is  present,  and  the  pavement  must 
be  regarded  as  considerably  impaired  as  a  structure. 
Such  cases  are  not  infrequent.  Pavement  of  this  class 
C  may,  however,  and  usually  does,  carry  traffic  without 
inconvenience.  "  Crowfoot  "  cracks  at  the  edge  of  the 
pavement  in  any  considerable  number  are  distinct  de- 
fects; they  are  not  normal,  and,  when  followed  by 
settlement  or  disintegration,  impair  the  service  of  the 
road.  Pavement  of  class  D,  so  cracked  transversely 
and  longitudinally  as  to  form  many  areas  of  con- 
crete of  about  50  square  feet,  is  decidedly  defective, 
and  when  accompanied  by  settlement  the  service  of 
the  road  is  slightly  impaired.  Pavement  ,of  class  E 
is  a  failure,  and  pavement  of  class  F  usually  indicates 
that  the  concrete  itself  was  bad  or  that  the  design  of 
the  pavement  was  inadequate.  Travel  on  this  class  is 
in  some  instances  quite  difficult. 

The  State  laid  1,365  miles  of  concrete  and  1,262  miles 
were  classified.  Of  that  classified,  157  miles,  or  12.5 
per  cent,  was  found  in  classes  D,  E,  and  F,  but  the 
degree  of  impairment  is  somewhat  greater  than  the 
percentage,  since  the  defective  pavement  is  distributed 
throughout  the  State.  The  pavement  in  class  F  was 
largely  concentrated,  and  less  than  6  miles  remains  un- 
restored.  The  pavement  in  classes  E  and  D  will  require 
reconstruction  or  heavy  repairs  and  supplementary  con- 
struction in  the  immediate  future;  there  are  about  114 
miles  of  these  two  classes. 

CONSTRUCTION  AND  MAINTENANCE. 

An  analysis  of  construction  done  and  the  costs  thereof 
shows  a  rapid  building  of  the  important  trunk  high- 
ways to  approximate  completion  and  at  a  very  reason- 
able cost.  The  total  average  percentage  of  construc- 
tion costs  on  both  day  labor  and  contract  work,  charge- 
able to  administration,  engineering,  and  overhead,  is 
15.86  per  cent,  and  is  reasonable.  The  total  overruns 
above  the  engineer's  estimates,  amounting  to  6.24  per 
cent  of  the  final  total  payment  on  construction,  is  low 
in  view  of  the  recent  rise  in  prices.  On  day-labor  jobs 
this  corresponding  percentage  is  higher,  as  expected, 
but  is  not  excessive.  The  analysis  in  Appendix  B  of 
the  20  jobs,  both  contract  and  day  labor,  which  pre- 
sented the  greatest  apparent  percentage  of  overruns, 
shows  adequate  reasons  in  practically  every  instance 
for  such  overruns  of  the  estimate. 

The  accounts  in  the  headquarters  office  on  all  work 
were  found  very  complete  and  without  discrepancies, 
and  the  cost  figures  here  presented  are  accurate  and 
official. 

The  direct  charges  for  maintenance  and  improvement 
are  found  not  to  be  excessive;  the  overhead  and  indi- 
rect charges,  however,  are  apparently  19.2  per  cent, 


overhead  alone  12.5  per  cent,  which  seems  rather  ex- 
cessive. The  direct  control  of  maintenance  of  State 
highways  by  the  State  and  the  application  of  the  net 
automobile  revenues  to  this  work  is  believed  to  be  an 
excellent  arrangement.  The  organization  of  mainte- 
nance under  a  headquarters  maintenance  engineer  oper- 
ating through  the  seven  division  offices  appears  ade- 
quate, though  in  some  instances  rather  important  job 
work  appears  to  require  more  competent  direct  super- 
vision. x 

There  are  at  present  under  maintenance  a  total  of 
3,293  miles  of  State-controlled  roads.  These  include 
1,524  miles  of  earth  and  gravel  roads,  including  special 
State  roads  built  prior  to  1912,  and  about  150  miles  of 
oiled  county  pavement  which  the  State  has  acquired 
from  the  counties.  The  expenditure  for  maintenance 
and  improvement  of  earth  and  gravel  roads  is  nearly 
one-third  of  the  entire  expenditure. 

Since  the  law  now  allows  the  automobile  money  ac- 
cruing to  the  State  highway  commission  to  be  used  for 
"  improvement,"  it  is  found  that  considerable  gravel 
and  other  surfacing  has  been  done  from  this  fund.  The 
complete  analysis  or  tabulation  of  distributed  mainte- 
nance and  improvement  costs  for  each  original  project 
built  by  types  and  by  years  was  not  attempted,  but  the 
data  for  such  analysis,  while  sometimes  confusing,  ex- 
ists in  the  headquarters  records.  Sufficient  investiga- 
tion of  the  maintenance  books  was  made  to  determine 
accurately  the  unit  costs  and  the  summary  costs  here 
given. 

It  appears  that  up  to  1920  the  commission  has 
thought  of  necessary  travel  more  in  direct  relation  to 
the  increasing  maintenance  costs  rather  than  in  respect 
to  its  influence  on  design  of  new  construction.  In  this 
connection  it  is  to  be  observed  that  in  1912  the  increase 
of  traffic  could  not  be  foreseen,  but  it  would  appear 
that  by  the  end  of  1915,  when  1912  registrations  had 
nearly  doubled,  that  the  1918  registrations  should  have 
been  foreseen. 

ADMINISTRATIVE  AND  ENGINEERING  ORGANIZA- 
TION. 

The  organization  was  highly  developed.  It  has  con- 
tinued with  little  change  since  1911.  During  the  war, 
in  common  with  other  State  highway  departments,  it 
was  impaired  by  loss  of  personnel  and  its  work  was 
hampered  by  bad  industrial  conditions.  It  is  not  un- 
wieldly  and  in  form  is  unusually  well  adapted  for  the 
large-scale  operation  it  has  conducted.  The  salary 
scale  is  good. 

The  details  of  the  engineering  standards  are  carefully 
thought  out  and  unusually  complete.  The  standard 
plans  and  drawings  are  excellent,  and  the  clear-cut  pre- 
cision of  all  engineering  operation  makes  for  speed 
and  efficiency.  The  cost  of  all  overhead  and  admin- 


125 


istrative  and  engineering  items  on  contract  jobs  has 
averaged,  as  mentioned,  15.86  per  cent,  which,  in  view 
of  the  average  low  cost  of  construction  per  mile  is  very 
reasonable,  as  is  similarly  15.88  per  cent  on  day-labor 
jobs. 

There  is  some  evidence  of  a  cramped  condition  in 
the  functioning  of  the  organization.  It  appears  that 
headquarters  control  is  so  complete  that  it  may  in- 
hibit those  reciprocal  actions  necessary  for  healthy 
growth.  There  is  a  good  opportunity  with  such  an 
organisation  to  develop  this  reaction  function  and 
initiative  of  the  engineering  employees  who  are  in  first- 
hand contact  with  the  job.  With  the  extraordinarily 
efficient  directive  functioning  in  all  details,  a  corre- 
sponding return  functioning  of  the  organization 
through  the  division  engineers  to  headquarters  is  de- 
sirable to  develop  new  ideas  with  the  extension  of  con- 
tart  with  the  job.  More  initiative  and  authority  would 
increase  efficiency;  thus  the  significance  of  the  adobe 
reaction  might  have  developed  sooner  and  better  align- 
ment could  have  been  produced  by  changes  authorized 
during  construction  from  reports  by  resident  engineers. 

The  procedure  in  advertising  and  letting  of  contracts 
appears  to  be  satisfactory.  Some  of  the  early  contrac- 
tors were  inexperienced  in  road  work  and  lost  money. 
This  condition  has  frequently  occurred  in  other  States. 
There  is  some  apparent  delay  in  the  completion  of  final 
payments  due  to  the  routing  of  the  paper. 

CONVICT  LABOR. 

The  State  highway  department  officials  report  favor- 
ably  regarding  convict  work.  They  bring  out  these 
points: 

The  inaccessible,  difficult,  inspiring,  and  remote  re- 
gions selected  proved  of  advantage  as  environment  and 
eliminated  any  criticism  of  competition  with  free  labor 
or  contact  with  undesirable  "  free  "  citizens. 

The  kind  of  work  selected — heavy  grading  and  clear- 
ing and  grubbing — has  been  well  adapted  for  success. 

Unguarded,  honor,  and  long-term  convicts  work  best. 

Good  camps  and  food  pay,  and  the  outdoor  life  is 
wholesome. 

There  was  difficulty  at  the  start  due  to  dual  adminis- 
trative control  by  the  State  prison  authority  and  the 
State  Highway  Commission  authority.  This  conflict 
was  eliminated,  and.  with  reward  for  good  behavior 
and  punishment  for  misbehavior,  the  work  of  the  con- 
victs has  proved  economical,  especially  during  the  war. 

ECONOMIC  AND  OTHER  STUDIES. 

The  one-day  traffic  at  103  stations  on  the  State  high- 
ways is  an  index  of  the  use  of  the  roads.  This  traffic 
day  was  distributed  between  August  7  and  October  14 
and  throughout  the  State  and  the  assumed  daily  aver- 
age total  of  2,500,000  vehicle  miles  should  be  repre- 


sentative for  the  summer  interval,  or,  say,  from  June  1 
to  November  1.  The  resulting  total  vehicle  miles  of 
375,000,000  is  70  per  cent  on  the  State-paved  highways 
alone.  These  results  262,500,000  vehicle  miles  indi- 
cated service  by  such  paved  highway.  The  operating 
income  at  5  cents  a  vehicle  mile  is  $13,125.000. 

To  this  amount  must  be  added  an  operating  income 
for  the  service  interval  November  1  to  June  1.  This 
latter  amount  can  not  be  based  on  a  traffic  figure,  but 
a  minimum  figure  would  indicate  a  total  annual  operat- 
ing income  of  $20,000,000  for  1920. 

For  preceding  years,  when  there  were  fewer  miles  of 
State  pavement  and  fewer  vehicles,  the  operating 
revenue  can  not  be  placed  at  a  figure  greater  than  the 
corresponding  percentage  of  this  total.  Thus,  in  1919, 
with  an  average  of,  say  450,000  motor  vehicles  in  use, 
or  90  per  cent  of  the  1920  average,  and  93  per  cent  as 
much  paved  highway,  there  could  not  have  been  more 
than  83  per  cent  as  much  corresponding  operating  in- 
come. If  the  figure  is  placed  at  $15,000,000  there  re- 
sults an  indicated  gross  operating  revenue  in  the  last 
two  years  of  $35,000,000. 

The  element  of  assumption  in  the  above  reasoning  is 
regarded  as  conservative.  It  is  unnecessary  to  extend 
the  computation  to  make  immediately  evident  that  the 
operating  income  from  the  State-paved  highway  sys- 
tem alone  since  1913  has  more  than  equaled  the  total 
expenditure  for  construction  and  for  repair,  improve- 
ment and  maintenance  of  the  entire  mileage  paved  and 
graded  by  the  State.  The  operating  income  from  the 
graded  portion  and  the  portion  built  by  the  counties 
and  acquired  and  maintained  by  the  State  has  been 
disregarded.  A  corresponding  decrease  in  operating 
revenue  to  the  community  would  have  occurred  had  the 
mileage  been  shortened  by  constructing  a  more  durable 
type. 

It  is  observed  that  during  the  decade  1910  to  1920  the 
estimated  value  of  agricultural  products  has  increased 
over  300  per  cent ;  the  population  of  the  entire  State,  4-J 
per  cent;  and  the  population  on  the  highways,  exclu 
sive  of  the  two  largest  cities,  63  per  cent. 

These  facts  are  evidence  that  the  policy  of  extension 
of  mileage  of  serviceable  pavement  was  justified  in  the 
initial  period.  Highways,  like  the  railroads,  build  up 
business,  and  a  period  of  supplementary  construction 
follows  without  financial  strain  because  of  increased 
operating  revenue.  The  advertising  value  of  the  high- 
way system  has,  without  question,  added  to  the  popula- 
tion and  to  the  tourist  attraction. 

Although  for  the  most  part  the  service  rendered  by 
the  roads  built  is  still  uniformly  good,  it  is  very  evi- 
dent that  the  State  can  now  well  afford  to  raise  the 
standard  of  construction.  This  standard  must  satisfy 
all  motor-vehicle  operators.  The  increase  in  the  use  of 
the  trucks  will  doubtless  for  a  time  be  increasingly 
rapid.  It  has  been  over  500  per  cent  in  seven  years 


126 


and  250  per  cent  during  the  past  three  years,  and  will 
demand  a  greatly  increased  factor  of  safety  in  the 
pavement. 

But  the  increase  in  motor  registration  figures  can  not 
he  the  only  index  of  the  future  duty  of  the  roads.  Ad- 
ditional information  useful  for  the  State  Highway  Com- 
mission can  be  secured  by  elaborating  the  form  used 
for  registration,  hut  the  necessity  of  a  comprehensive 
traffic  census  at  frequent  intervals -is  great.  Only  a 
traffic  count  will  determine  the  distribution  of  high- 
way operations  and  yield  corresponding  control,  both 
of  design  and  maintenance  allotments. 

The  maintenance  and  repair  operation  in  the  past 
period  has  involved  excessive  patching  in  certain  sec- 
tions due  to  the  thin  4-inch  pavement  and  the  increase 
in  traffic  volume,  weight,  and  speed.  In  the  future, 
however,  the  demand  for  better  quality  of  pavement 
service  will  become  more  exacting,  and  the  increased 
traffic  will  require  maintenance  for  various  items  on 
any  type  or  standard  of  pavement,  so  that  as  the  system 
develops  the  aggregate,  maintenance  charge  may  be  ex- 
pected to  increase. 


There  is  evidence  that  relatively  few  vehicles  have 
excessive  total  loads,  but  field  weighings  showed  a  large 
percentage  of  overload  of  trucks  per  inch  width  of 
solid  tire.  Unfortunately  the  exact  record  of  this  item 
was  lost.  It  must  be  inferred  that  the  infrequent  and 
incidental  heavy  load  is  very  destructive.  Defects  of 
the  crowfoot  type  in  the  pavement  are  regarded  as 
due  solely  to  traffic  impact  on  the  thin  slab  with  ad- 
verse subgrade  condition.  Crowfoot  defects  developed 
largely  since  September,  1920,  on  Federal-aid  project 
No.  11,  10  Fresno  *D,  between  Coalinga  and  Oil  King 
School,  show  by  actual  count  54  on  the  incoming  or 
unloaded  edge,  against  283  on  the  outgoing  or  loaded 
edge.  This  is  G-inch  pavement  18  feet  wide  on  adobe. 
Not  only  heavy  soils  but  also  sandy  soils  underlie  de- 
fects of  this  type,  nor  is  a  4-inrh  pavement  of  greater 
width  exempt  from  such  defects.  Excessive  transverse 
cracks  are  also  inevitable  in  a  thin  slab  with  any  com- 
bination of  adverse  traffic  and  subgrade  conditions. 

Whatever  design  is  adopted  and  whatever  the  legal 
speed  and  loading,  there  is  evidence  that  better  enforce- 
ment of  the  law  is  required. 


CONCLUSION 


The  State  highway  system  has  in  general  been  well 
selected  and  laid  out.  The  mileage  prescribed  by  law 
has  far  exceeded  the  funds  and  this  discrepancy  dis- 
torted the  policy.  The  mileage  remaining  to  be  built 
is  far  in  excess  of  the  combined  capacity  of  the  third 
bond  issue  and  all  available  Federal  aid. 

The  deferred  serial  type  of  highway  bond  adopted 
is  good,  but  the  longest  terms  of  every  issue  (44-45 
yours)  are  e\<-es>ive.  and  the  long  terms  will  require 
millions  of  needless  interest.  The  amounts  of  money 
were  sufficient  to  permit  planning  of  comprehensive 
i -i instruction  programs  and  economy  of  large  opera- 
tions. The  legal  restrictions  on  the  bonds  were  seri- 
ously embarrassing.27 

The  order  of  selection  and  construction  of  roads  from 
year  to  year  lias  been  largely  controlled  by  necessary 
policy. 

The  policy  of  permitting  unpaved  exceptions  in  small 
incorporated  towns  is  uneconomical  and  impairs  the 
efficiency  of  service  of  the  State  highways. 

The  linancial  administration  has  been  scrupulously 
honest  and  careful,  and  the  administrative  and  engi- 
neering costs  have  not  been  excessive,  nor  have  final 
costs  much  exceeded  the  engineer's  estimates. 

Convict  work  has  been  successful,  especially  during 
the  war.  and  from  both  aspects — the  road  work  and 
reflex  effect  on  the  convict — it  has  been  found  necessary 
for  success  largely  to  eliminate  any  dual  control  of  con- 
victs on  the  job.  The  State  prison  funds  clearly  should 
bear  some  expense. 

There  has  been  a  conspicuous  growth  of  motor  ve- 
hicle registration  in  California  during  the  past  con- 
>t  ruction  period  and  a  corresponding  increase  in  vol- 
ume and  intensity  of  traffic.  The  commission  evidently 
did  not  anticipate  this  increase  and  did  not  provide  for 
it  in  their  original  design,  nor  did  they  count  the  traffic 
throughout  the  State.  A  very  careful  traffic  census 
should  be  taken  at  intervals. 

It  is  not  believed  that  modern  rubber-tired  traffic  on 
a  smooth  concrete  road  is  abrasive,  although  solid-tired 
vehicles  doubtless  produce  some  breaking  down  of 
edges  of  separated  cracks.  Xo  definite  correlation  was 
found  between  the  total  of  vehicles  and  the  condition  of 
the  concrete  pavement  itself,  but  the  total  traffic  does 
largely  determine  the  wear  of  shoulders  and  in  many 
places  does  indicate  a  too-narrow  width  of  pavement. 
It  is  believed  that  the  impact  of  excessively  heavily 
loaded  trucks,  particularly  at  high  speeds,  is  very  de- 
structive to  a  thin,  narrow  pavement  on  adverse  soils, 


'-'•  Such  restrictions  were  removed  by  the  vote  of  Nov.  2,  1920. 


but  it  is  evident  from  the  data  that  such  trucks  are  in 
a  small  minority  in  California.  Truck  traffic  is  in- 
creasing ;  the  size  and  number  of  commercial  passenger 
busses  is  very  noticeable  and  there  may  be  expected  a 
parallel  increase  in  the  development  of  commercial 
freight  motor-truck  traffic.  Passenger  busses  are 
already  operating  on  the  15-foot  pavement  to  the  dis- 
advantage of  other  traffic,  and  the  law  allows  a  total 
width  of  farm  load  of  10  feet  which  is  excessive  for 
such  pavement. 

State  authorities  can  not  control  the  volume  nor  the 
distribution  of  traffic  on  the  State  highways,  but  com- 
plete and  effective  cooperation  between  the  State  high- 
way commission  and  the  motor  vehicle  department  con- 
trolling the  character  of  traffic  is  necessary.  The  cre- 
ation of  special  State  police  exclusively  to  enforce  the 
vehicle  laws  may  be  required. 

There  is  a  very  large  annual  operating  revenue  to  the 
community  from  the  State  highways.  The  total  of  this 
revenue  has  probably  paid  for  all  construction  costs  to 
date  and  would  have  been  correspondingly  decreased 
with  less  mileage. 

A  sum  equal  to  the  total  net  motor-vehicle  fees  at 
the  present  average  rate  will  probably  always  be  re- 
quired for  the  absolute  maintenance  and  improvement 
of  State  highways  as  construction  of  the  5,560  miles 
progresses.  The  original  theory  of  a  license  to  operate 
a  motor  vehicle  is  obsolete  in  a  community  where  97 
per  cent  of  traffic  is  by  motor  and  the  registration  fee 
becomes  a  charge  for  use  of  the  road.  Systematic 
financing  of  the  upkeep  will  ultimately  adjust  the  aver- 
age fee  to  the  requirement  of  upkeep  and  also  adjust 
the  fee  to  the  vehicle  type  to  conform  more  closely  to 
the  impairment  produced.  An  immediate  increase  of 
the  State's  share  of  the  net  automobile  revenue  would 
be  good  economy,  as  a  large  mileage  of  defective  con- 
crete road  must  be  at  once  repaired  and  resurfaced. 

The  tables  and  the  diagrams  of  condition  and  the 
-tatistics  of  sample  core  and  soil  tests  clearly  indicate: 

(a)  A  correlation  between  defective  pavements  of 
classes  D,  E,  and  F.  and  adverse  soil  conditions;  about 
110  miles  or  TO  cent  of  1~>~  miles  total  of  these  three 
classes  occur  on  soils  of  class  1,  which  includes  all  adobe 
soils. 

(b)  That  since  the  average  corrected  testing  strength 
of  concrete  cores  is  above  3,000  pounds  to  the  square 
inch,  the  concrete  itself  is  not  generally   defective  in 
strength,  nor  does  it  show  any  wear  by  traffic. 

(c)  The  class  condition  of  all  concrete  pavement  in- 
dicates a  slow  progressive  deterioration  and  that  type 


(127) 


128 


built  tends  to  reach  its  approximate  stage  of  classifica-  There  are  sufficient  typical  failures  to  show  that  in  the 

tion  comparatively  soon  and  thereafter  to  change  more  future  only  designs  of  increased  strength  and  adapted 

slowly.  to  resist  such  failure  should  be  used.     There  will  be 

(d)  The  diagram  showing  average  strength  as  de-  necessary  every  possible  precaution  to  prevent  failure 
termined  by  cores  tested  from  concrete  laid  during  the  on  adverse  subsoils  of  adobe,  clay  adobe,  or  similar  soils, 
various  years  indicates  that  there  may  be  a  slow,  pro-  On  such  soils,  in  the  absence  of  any  proved  successful 
gressive     deterioration     of     the     concrete     itself,    or  design,  short  sections  only  of  tentative  design  should 
"  fatigue  "  in  a  thin  slab  subject  to  excessive  flexure.  be  attempted,  or  there  should  be  first  developed  frank 

(e)  There  is  no  conclusive  indication,  so  far,  that  the  experimental  construction  to  determine  a  workable  and 


previous  reinforcement  in  a 
4 -inch  or  5-inch  slab  has 
produced  a  measurable  in- 
crease in  the  quality  or  dura- 
bility of  the  pavement. 

(/)  There  is  shown  by  the 
diagram  of  comparison  be- 
tween class  condition  of  oil- 
surfaced  concrete  and  the 
class  condition  of  bare  con- 
crete a  slight  superiority  in 
the  average  condition  of  the 
pavement  surfaced  with  the 
three  -  eighths  -  inch  oil  top, 
but  in  view  of  obscured 
classification  there  is  no 
demonstrated  marked  superi- 
ority of  oil-surfaced  pave- 
ment. 

(g)  Typical  longitudinal 
(and  other)  cracking  found 
on  adverse  subgrade  soils, 
and  shown  by  many  of  the 
7,500  photographs  now  on 
file  in  the  Bureau  of  Public 
Roads,  indicates  a  distortion 
of  the  subgrade  due  to  vary- 
ing moisture  content  and 
shrinkage.  The  diagrams 
showing  lines  of  equal  mois- 
ture content  clearly  indicate 
the  influence  of  the  concrete 
pavement  in  preventing  eva- 
poration. The  high  capil- 


DUNSMUIR   BRIDGE   OVER   SACRAMENTO    RIVER. 


economical  design. 

Such  a  design  will  require 
the  reinforcement  now  pro- 
vided by  the  commission  and 
a  more  massive -type  of  con- 
crete not  less  than  6  inches 
in  average  depth,  and  some 
adequate  corrective  treatment, 
of  subgrade,  and  possibly  a 
form  of  "mulching"  of 
shoulders  to  prevent  evapora- 
tion. A  flat  subgrade  is  de- 
sirable and  less  crown. 

It  is  believed  that  on  the 
main  roads  more  satisfactory 
results  will  follow  a  con- 
siderably bolder  standard  of 
location  on  hill  and  moun- 
tain grades,  and  that  an  in- 
crease in  width  of  pavement 
to  a  minimum  of  18  feet  is 
now  desirable,  with  more  sys- 
tematic widening  and  super- 
elevation on  curves. 

Under  modern  traffic  con- 
ditions there  is  an  increasing 
demand  for  unimpaired  align- 
ment and  fast  travel  between 
centers.  To  this  end  designs 
of  highways  must  produce  in 
general  a  road  that  can  be 
traversed  at  a  speed  of  30 
miles  per  hour  throughout 
and  without  excessive  operat- 


larity  of  adobe  soils  and  the  great  shrinkage  in  the  long  ing  costs  due  to  changing  speeds,  etc.    Therefore,  first 

hot  summers  thus  produce  very  unfavorable  conditions  economy  in  grading  becomes  a  rapidly  decreasing  ad- 

for  a  thin  pavement  under  increasing  traffic.  vantage  and  must  give  way  to  the  increased  safety  and 

All  unrepaired  pavement  of  classes  D  to  F,  inclusive,  comfort  of  travel. 

which  totals  120  miles  and  much  of  which  is  on  adobe  There  would  be  advantage  in  some  exceptions  to  the 

soils,  is  doubtless  deteriorating  and  demands  immediate  present  standard  of  no  transverse  joints.     In  the  hot 

repair  and  supplementary  construction.     It  is  doubtful  valleys  considerable  buckling  of  the  4-inch  slab  occurs, 

if  much  of  the  pavement  of  these  classes,  especially  on  with  attendant  disintegration  in  infrequent  instances, 

adobe,  will  ultimately  prove  an  adequate  base  for  a  This  tendency  to  buckle  would  doubtless  be  reduced 

l|-inch  Topeka  top.     An  adequate  "  second-story  "  con-  by  a  thicker  slab.    Experiment  with  transverse  joints  at 

crete  construction,  if  extended  to  a  total  width  of  20  varying  intervals  is  desirable  on  adverse  or  adobe  soils. 

feet  to  thus  include  two  new  concrete  shoulders  of  full  The  future  pavement  will  require  a  much  larger  factor 

depth,  is  to  be  preferred.  of  safety. 


129 


The  policy  of  construction  of  grading  and  drainage 
structures  and  gravel  surface  only  on  certain  roads  in 
Districts  1,  2,  and  3,  in  particular,  was  economically 
sound  and  deferring  of  paving  up  to  the  present  doubt- 
less justified.  Through  roads  with  a  minimum  of  un- 
improved gaps  resulted  from  such  policy  and  with  ade- 
quate standard  for  most  interstate  travel. 

The  standard  of  design  and  workmanship  of  struc- 
tures is  high  and  the  costs  have  been  very  reasonable. 
Many  bridges  exhibit  attractive  designs  of  unusual  ele- 
gance. In  many  places  the  side-hill  type  of  inlets  is 
not  functioning.  The  prevailing  type  of  guard  rail  is 
a  reflection  of  the  original  purpose  to  protect  horse- 
drawn  traffic  and  might  be  modified  to  advantage  in 
maintenance  cost.  Railroad  grade  crossing  elimination, 
where  undertaken,  has  been  well  done  and  will  require 
constantly  more  attention  and  investment  of  State 
funds. 

The  standard  of  finish  on  concrete  pavement  has  im- 
proved, but  it  is  believed  that  still  greater  refinements 
will  constantly  be  demanded  and  will  probably  pay  in 
reduction  of  impact  and  resulting  injury  to  and  by 
traffic.  It  is  not  believed  that  the  continued  use  of  the 
three-eighths  inch  oil  top  is  justified  by  past  experience. 
The  concrete  should  be  laid  not  as  a  base  but  as  a  wear- 
ing surface. 

There  is  nothing  presented  by  the  entire  California 
study  that  indicates  that  concrete  is  not  a  successful 
pavement.  One  of  the  clearest  results  is  the  emphasis 
on  the  need  of  better  subgrade  protection.  Highway 
grading  is  more  exacting  than  railroad  grading.  There 
should  be  further  studies  in  respect  to : 

(a)  Traffic,  with  a  new  traffic  census  before  June  1, 

1921.  and  periodically  thereafter. 

(b)  The  indicated  slow  deterioration  of  the  existing 

concrete,  with  continuing  core  tests. 
75712—22 9 


(c)  Soils,  with  considerable  elaboration  of  the  mois- 

ture-content study  in  pavement-protected  sub- 
grades,  and  the  thickness  of  necessary  protec- 
tive soil  layers  on  adobe,  and  of  the  required 
percentage  of  admixtures  to  lessen  shrinkage 
and  to  increase  the  bearing  power,  also  with 
respect  to  capillarity  and  critical  moisture 
content, 

(d)  Alkali  and  its  effect  when  present  in  the  sub- 

grade  or  in  the  mixing  or  ponding  water. 

It  is  believed  that  the  motor  vehicle  registration  law 
should  provide  separate  records  of  the  numbers  of  (a) 
all  commercial  trucks,  including  rubber-tired  trucks; 
(b)  all  public  freight  trucks  of  certain  important 
classes;  (c)  all  foreign  cars;  and  (d)  all  public  passen- 
ger-carrying busses,  and  should  contain  strict  provi- 
sions regarding  tire  conditions  on  all  solid-tired  trucks 
with  respect  to  the  minimum  rubber  cushions  and  flat 
tires,  or  projections,  etc. 

The  work  of  the  State  Highway  Commission  and  the 
highway  engineer  shows  a  continuous  and  intelligent 
devotion  to  public  duty.  Their  construction  opera- 
tions have  been  widely  extended  under  greatly  varying 
conditions.  A  high  degree  of  standardization  was 
doubtless  necessary  and  is  evident.  The  failures  (12.5 
per  cent  of  D,  E,  and  F  pavement)  are  not  extensive, 
and  some  were  inevitable  on  large-scale  work.  The 
4-inch,  15-foot  concrete  pavement  was  continued  be- 
yond the  point  of  success  on  adverse  soils,  and  more 
time  will  be  needed  to  develop  a  type  of  construction 
certain  of  success  on  such  soils.  The  operations  have 
produced  a  large  mileage  of  very  serviceable  road  and 
from  an  economic  standpoint  are  conspicuously  success- 
ful and  of  continuing  benefit  to  the  State.  The  oper- 
ating income  from  the  highways  is  now  sufficiently 
large  to  insure  the  economic  success  of  a  considerably 
increased  standard  of  construction. 


130 


PLATE    LVII. 


ROUTE  9,   LOS  ANGELES  COUNTY.   SECTION   A. 


'COAST   ROUTE."     2   SANTA   BARBARA   K. 


131 


PLATE   LVIII. 


ROUTE  7.  SOLANO  A. 


ROUTE  9.  LOS  ANGELES  A. 


APPENDIX   A.— DETAILS   OF  STATE  HIGHWAY  BONDS  AND  HIGH- 
WAY SYSTEMS  PROPOSED 


FIRST  BOND  ISSUE,   1909 $18,000,000. 

The  nominal  rate  of  interest  is  4  per  cent  and  the 
maximum  terms  45  years.  As  the  law  provided  that 
the  bonds  must  not  be  sold  below  par  the  issue  was  hard 
to  market  and  only  $4,280,000  was  sold  publicly ;  the 
remainder,  $13,720,000,  was  taken  by  the  counties.28 
Had  this  procedure  not  been  adopted  the  work  could 
probably  not  have  continued. 

The  State  highway  act  of  1909  states  relative  to  the 
first  bond  issue :  "A  system  of  State  highways  in  and 
for  the  State  of  California  shall  be  constructed  and  ac- 
quired as  and  in  the  manner  provided  by  law  by  the 
department  of  engineering  of  said  State,  at  a  cost  not 
to  exceed  eighteen  million  dollars.  *  *  *  The  first 
four  hundred  of  said  bonds  shall  be  due  and  payable 
on  the  third  day  of  July,  1917,  and  four  hundred  of 
said  bonds  in  consecutive  numerical  order  shall  be  due. 
and  payable  on  the  third  day  of  July  in  each  and  every 
year  thereafter  until  and  including  the  third  day  of 
July,  1961.  The  interest  accruing  on  all  of  said  bonds 
that  shall  be  sold  shall  be  payable  at  the  office  of  the 
treasurer  of  the  State  on  the  third  day  of  January  and 
the  third  day  of  July  of  each  and  every  year  after  the 
sale  of  the  same.  *  *  *  There  is  hereby  created  in 
and  for  the  State  treasury  a  fund  to  be  known  and 
designated  as  the  '  State  highway  fund '  and  imme- 
diately after  such  sale  of  bonds  the  treasurer  of  the 
State  shall  pay  into  the  State  treasury  and  cause  to 
be  placed  in  such  State  highway  fund  the  total  amount 
received  for  said  bonds,  etc.  The  moneys  placed  in 
the  State  highway  fund  *  *  *  shall  be  used  ex- 
clusively for  the  acquisition  of  rights  of  way  for  and 
the  acquisition  and  construction  of  said  system  of  State 
highways." 

SECOND    BOND    ISSUE,    1915 $15,000,000. 

The  nominal  rate  of  interest  on  these  bonds  is  4J  per 
cent  and  the  maximum  term  40  years.  These  bonds 
found  a  ready  market,  except  when  the  Federal  Capital 
Issues  Committee  was  in  operation.  The  "  State  high- 
way act  of  1915  "  states  relative  to  this  second  issue : 
"The  fund  created  for  the  construction  and  acquisi- 
tion of  a  system  of  State  highways  by  the  '  State  high- 
ways act'  of  1909,  being  inadequate  to  fully  carry  out 

23  Act  of  Mar.  22,  1909,  provided  in  section  8  that  counties  in  which 
bond  money  was  spent  should  pay  the  corresponding  interest  charges, 
and  the  act  of  Mar.  10,  1911,  ch.  165,  p.  339,  provided  amended  and 
detailed  procedure.  Act  of  Apr.  23,  1913,  authorizes  counties  to  pur- 
cliase  State  highway  honds. 


the  objects  of  said  act,  the  uncompleted  portions  of  said 
system  prescribed  by  said  '  State  highways  act '  and  cer- 
tain extensions  therefrom  hereinafter  specified  shall  be 
constructed,  improved,  and  acquired  as  and  in  the 
manner  provided  by  law  by  the  department  of  engi- 
neering of  said  State  at  a  cost  not  to  exceed  fifteen 
million  dollars."  The  usual  provisions  follow  for  the 
sale  of  bonds  and  "  The  said  bonds  shall  be  payable 
*  *  *  the  first  three  hundred  seventy-five  of  said 
bonds  *  *  *  on  the  third  day  of  July,  1923,  and 
three  hundred  seventy-five  *  *  *  on  the  third  day 
of  July  in  each  and  every  year  thereafter  until  and 
including  the  third  day  of  July,  1962.  The  interest 
accruing  *  *  *  shall  be  payable  on  the  third  day 
of  January  and  the  third  day  of  July  of  each  and  every 
year  after  the  sale  of  the  same."  This  act  creates  the 
"  Second  State  highway  fund "  and  directs  that  pro- 
ceeds of  the  sale  of  the  second  bond  issue  be  paid  into 
it  and  used  "  exclusively  for  the  acquisition  of  rights 
of  way  for  and  the  acquisition,  construction,  and  im- 
provement of  the  uncompleted  portions  of  the  system 
of  State  highways  prescribed  by  said  '  State  highway 
act.'  And  of  said  moneys  so  placed  in  said  second 
State  highway  fund,  the  sum  of  three  million  dollars, 
or  so  much  thereof  as  may  be  necessary,  is  hereby 
made  available  and  shall  be  used  exclusively  for  the 
acquisition  of  rights  of  way  for  and  the  acquisition, 
construction,  and  improvement  of  certain  extensions," 
etc.,  extensions  specified  in  the  act. 

THIRD   BOND   ISSUE,    1919,    $40,000,000. 

The  nominal  rate  of  interest  provided  in  the  law  is 
4|  per  cent,  and  the  maximum  term  40  years,  and  the 
bonds  are  required  to  be  sold  at  not  less  than  par.  The 
act  for  the  third  bond  issue  specified  that  the  "  interest 
shall  be  payable  on  the  third  day  of  January  and  the 
third  day  of  July  of  each  and  every  year  after  the 
sale  of  said  bonds,  and  said  bonds  to  become  due  and 
payable  in  annual  parcels  of  one  thousand  bonds,  com- 
mencing July  3,  1926,  and  ending  July  3,  1965."  The 
act  established  the  "third  State  highway  fund,"  into 
which  the  proceeds  of  sale  of  the  third  issue  of  bonds 
shall  be  paid  and  "  the  moneys  in  said  '  third  State 
highway  fund '  shall  be  used  by  the  State  department 
of  engineering  for  the  acquisition  of  rights  of  way  and 
for  the  acquisition,  construction,  and  improvement  of 
uncompleted  portions  of  the  system  of  State  high- 
ways prescribed  by  previous  State  highway  acts  and 


(132) 


133 


certain  additional  highways  named  in  the  act  provid- 
ing for  the  third  bond  issue."  Under  the  market  con- 
ditions of  1919  and  1920,  with  these  restrictions,  the 
bonds  were  unsalable  and  the  "board  of  control"  ar- 
ranged March  3,  1920,  to  sell  $3,000,000  of  the  bonds 
for  $92.59  plus  and  pay  the  discount,  amounting  to 
Si'±>,160.50.  with  accrued  Federal  aid.2* 

This  action  was  decided  legal  by  the  State  appellate 
court,  hut  the  decision  was  appealed  September  14  to 
the  Supreme  Court  of  the  State  of  California.  At 
the  date  of  rendering  this  report  the  supreme  court  had 
not  rendered  a  decision.30 

For  the  purpose  of  authorizing  the  issue  of  bonds 
more  readily  saleable  petition  was  made  to  cancel  the 
unsold  highway  bonds  of  the  third  issue  and  authorize 
other  bonds  to  the  same  amount  to  be  issued  at  an  in- 
terest rate  not  exceeding  6  per  cent.  This  initiative 
measure  was  submitted  to  the  people  for  vote  at  the 
general  election  November  2,  1920,  and  carried  de- 
cisively. This  measure  also  relieved  the  counties  of 
the  payment  of  interest  on  all  State  highway  bonds  in 
the  future. 

=>The  following  is  a  memorandum  from  the  State  Highway  Commis- 
sion, dated  September  25,  1920: 

rRiM-Ent'RE    VBGAKniNG     SALE    OF    $3,000,000    THIRD    HIGHWAY    BOND     ISSt  F. 

Tho  State  board  of  control  consists  of  three  members  appointed  by 
tin1  governor  and  holding  offlee  at  his  pleasure.  This  board  examines 
and  audits  claims  against  State  funrls  and  has  general  powers  of  super- 
vision over  all  matters  concerning  the  financial  business  policies  of 
the  State. 

The  State  board  of  control,  together  with  the  State  treasurer,  are 
authorized  to  designate  as  a  "  surplus  fund  "  any  money  in  the  State 
treasury  not  necessary  for  immediate  use. 

The  State  board  of  control  is  further  authorized  to  invest  the 
same  in  the  purchase  of  certain  classes  of  bonds,  including  bonds  of 
the  State  of  California. 

The  only  limitation  on  the  authority  of  the  State  board  of  control 
is  that  no  sale  or  exchange  of  bonds  so  purchased  by  the  State  board 
of  control  shall  be  made  at  a  price  which  will  result  in  a  net  loss  to 
the  State. 

Tho  advisory  board  of  the  State  department  of  engineering  is  em- 
powered hy  law  to  designate  the  fund  or  funds  to  which  the  State 
controller  shall  credit  moneys  received  by  the  State  treasurer  from  the 
rnitcd  States  Government  under  project  agreements  relating  to  Fed- 
eral-aid work. 

In  the  sale  of  State  highway  bonds  the  State  treasurer  must  obtain 
therefor  the  par  value  of  the  bonds  plus  accrued  Interest. 

In  February,  1920,  the  State  highway  bonds  were  below  par  in  the 
general  market.  The  State  treasurer  had  received  certain  monevs  from 
the  t'nited  States  Government  under  project  agreements  relating  to 
Federal-aid  road  work.  Unless  State  highway  bonds  could  be  sold, 
State  hiahway  work  would  be  vitally  affected. 

All  State  officials  concerned  therein  concurred  in  the  following  plan 
of  financing  :  Out  of  the  surplus  fund  the  board  of  control  first  paid 
to  the  State  treasurer  the  par  value  of  $3,000,000  worth  of  State  high- 
way bonds  with  accrued  interest  to  the  date  of  delivery  and  took  tie 
bonds  into  its  own  physical  possession,  custody,  and  control. 

Thereafter  the  board  of  control  sold  and  delivered  such  bonds  to  a 
syndicate  of  bond  buyers  at  a  price  less  than  par.  Upon  the  consum- 
mation of  such  sale  and  the  receipt  of  moneys  arising  therefrom  the 
hoard  of  control,  by  proper  direction  to  the  State  controller  and  State 
treasurer,  caused  all  such  moneys  to  be  paid  into  the  surplus  fund. 
Simultaneously  therewith  the  advisory  board  of  the  State  department 
of  engineering  directed  the  treasurer  to  cash  certain  Federal-aid  road 
money  i  ln'rks  and  from  the  proceeds  thereof  to  pay  the  sum  of  $222.- 
160.60  into  the  surplus  fund  in  such  manner  that  the  sum  so  paid  into 
the  surplus  fund  was  exactly  equivalent  to  the  sum  which  would  other- 
wise have  been  obtained  from  the  sale  of  the  bonds  had  the  latter  been 
sold  in  the  open  market  for  par  and  accrued  interest  to  date  of  delivery. 

The  Appellate  Court  of  the  State  of  California  has  upheld  the  valid- 
ity of  the  above  plan  and  has  decided  that  such  transaction  was  not 
in  violation  of  the  provision  of  the  surplus  fund  act  to  the  effect  that 
any  sale  or  exchange  of  bonds  purchased  by  the  State  board  of  control 
out  of  the  surplus  fund  shall  not  be  made  at  a  price  which  will  result 
in  a  net  loss  to  the  State. 

The  appellate  court  further  held  that  the  advisory  board  of  the  State 
department  of  engineering  was  within  its  powers  in  directing  the  credit- 
ing of  Federal-aid  road  moneys  to  the  surplus  fund. 

A  petition  for  a  rehearing  of  the  matter  is  now  pending  in  the  State 
supreme  court. 

«°  A  decision  was  rendered  May  20,  1921,  reversing  the  decision  of 
the  lower  court. 


Tables  32  to  36,  inclusive,  which  follow,  show  the 
annual  payments  which  will  be  required  to  pay  interest 
and  principal  on  the  various  bond  issues  until  all  are 
completely  amortized. 

TABLE  32. — Schedule  of  interest  and  principal  first  bond  issue — 

$18,000,000. 


Year. 

Principal 
outstanding. 

Interest  for 
the  year 
(4  percent). 

Principal 
repaid. 

Total  pay- 
ments.* 

1911.. 

$400.000 
1.731.000 
5.225,000 
11,715.000 
16,400.000 
18.000.000 
17,600.000 
17,200,000 
16,800.000 
16.400.000 
16,000,000 
15,600.000 

1912  

$16,000 
114,800 
311,100 
514,300 
688,000 
720,000 
704.000 

672.000 
656.000 
640.000 
624.000 

592,000 
576.000 
560.000 
544.000 
528,000 
512,000 
496.000 
480,000 
464,000 
448,000 
432,000 
416,000 
400,000 
381.000 

352.000 
336,000 
320,000 

..    ., 

tu  •• 

272.000 
256.000 
240.000 
224.000 
108,000 
192,000 
176.000 
160,000 
144,000 
128.000 
112,000 
96,000 
80.000 
64,000 
48,000 
32,000 
16,000 

$16.000 
114,800 
311.100 
514.300 
6SS.OOO 
.120,000 
.104,000 
,088.000 
.072,000 
,056,000 
,040.000 
,024,000 
,008,000 
992.000 
976,000 
960,000 
944,000 
928,000 
912,000 
...     ., 

864,000 
MS,  000 

so,  ... 

816,000 

XI  .:          QO 

784,000 
768,000 
752,000 
736,000 
720,000 
704.000 

672.000 
656,000 
6  SO.  000 
624,000 
608.000 
592,000 
576,000 
560.000 
544,000 
528.000 
512.000 
496.000 

464.000 
448.000 
432.000 
416.000 

1913...    .                      

1914..      .                      .... 

1915   . 

1916 

1917 

$400.000 
400.000 
400.000 
400.000 
400.000 
400.000 
400.000 
400.000 
400.000 
400,000 
400,000 
HO,  00 
400,000 
400.000 
400.000 
400.000 
400,000 
400,000 
400.000 
400.000 
400,000 
100,000 
400.000 
400,000 
400,000 
400.000 
400.000 
400.000 
400,000 
400.000 
400.000 
400.000 
400,000 
400,000 
400,000 
KJ    ... 

400.000 
400,000 
400,000 
400,000 
400,000 
400.000 
400,000 
400,000 
400,000 

1918 

1919 

1920 

1921 

1922 

1923 

15,200,000 
14,800.000 
14,400.000 
14,000,000 
13,600.000 
13,200.000 
12,800,000 
12,400,000 
12,000,000 
11.600,000 
11,200,000 
10,800,000 
10,400,000 
10,000.000 
9,600,000 
9,200,000 
8,800,100 
8,400,000 
8,000,000 
7  600  000 

1924  

1925  

1926 

1927 

1928  

1929  

1930...   .                    

1931.                                 .   . 

1932. 

1933. 

1934. 

1935 

1936 

1937 

1938 

1939 

1940 

1941 

1942 

1943 

7,200.000 
6,800,000 
6,400.000 
6,000.000 
5,600.000 
5,200.000 
4,800.000 
4,400,000 
4,000.000 
3,600.000 
3,200.000 
2,800,000 
2,400,000 
2,000,000 
1,600,000 
1,200,000 

400,000 

1944 

1945 

1946 

1947  

1948 

1949 

1950 

1951  

1952  

1953  

1954          

1955         .               

1956         .             

1957  .                .   . 

1958 

1959                             .       .   . 

1960 

1961 

Total 

18,204,200 

18,000,000 

36,201,200 

TABLE   33. — Schedule   of   interest   and    principal    second    bond 
issue — f  15,000,000. 


Year. 

Principal 
outstanding. 

Interest  for 
the  year 
(4}  per  cent). 

Principal 
repaid. 

Total  pay- 
ments. 

1917  

$5,000,000 

1918         .                        .   . 

7,116,000 

J225  247 

$225  247 

1919 

12,500,000 

385  110 

385  110 

1920 

13,000  000 

573  75(1 

573  750 

1921 

15  000  000 

5fg  .... 

585  000 

1922 

15  000  000 

675  000 

57;    OQ 

1923 

14  625  000 

675  000 

$375  000 

i  oso'ooo 

1924 

14  250  000 

658  125 

375  000 

1  033  125 

1925 

13  875  000 

641  250 

375  000 

1  016  250 

1926 

13  500  000 

624  375 

--,  ... 

•rf:        -' 

1927 

13  125  000 

607  500 

--    ,. 

. 

1928 

12  750  000 

-  •  •  •    ' 

7-    .  . 

*    -      .       ' 

1929 

12  375  000 

573  750 

;  ".   >  •  i 

Mg  Tfifl 

1930 

12  000  000 

--.    UTJ 

375  000 

931  875 

1931  

11,625,000 

-  .,    .. 

375  000 

915  000 

1932     .'. 

11,250,000 

523,125 

375  000 

«•..  •  •• 

1933         

10,875.000 

506,250 

375  000 

-- 

1934         .          

10,500,000 

HO     K 

375  000 

864  375 

1985         .       .             

10,125,000 

472,500 

375  000 

»:;    '.  . 

1936         .          .   . 

•  9,750,000 

455,625 

375  000 

X    .  .  •- 

1937 

9,375,000 

OS  ISO 

ITS  ,.«• 

813  750 

1938 

9,000,000 

421,875 

375  000 

7  •    |7| 

1939 

.. 

KB  mo 

375  000 

-. 

mo... 

8.250.000 

88.  UK 

75  00 

763.125 

134 


TABLE   33. — Schedule   of    interest    and   principal   second    bond 
issue — $15,000,000 — Continued. 


Year. 

Principal 
outstanding. 

Interest  for 
the  year 
(4J  per  cent). 

Principal 
repaid. 

Total  pay- 
ments. 

1941   

$7.875.000 

$371,250 

$375,000 

$746,250 

1942     

7,500.000 

354,375 

375,000 

729,375 

1943   

7,125.000 

337,500 

375,000 

712,500 

1944   

6,750,000 

320,625 

375,000 

695,625 

1945  

6,375,000 

303,750 

375,000 

678,750 

1946  

6,000,000 

286,875 

375,000 

661,875 

1947  

5,625,000 

270,000 

375,000 

645,000 

1948                                 .   ... 

5,250,000 

253,125 

375,000 

628,125 

1949  

4,875,000 

236,250 

375,000 

611,250 

1950  

4,500,000 

219,375 

375,000 

594,375 

1951  

4,125,000 

202,500 

375,000 

577,500 

1952                   

3,750,000 

186,625 

375,000 

560,625 

1953                   

3,375,000 

168,750 

375,000 

543,  750 

1954         

3,000,000 

151,875 

375,000 

526,875 

1955                

2,625,000 

135,000 

375,000 

510,000 

1956                   

2,250,000 

118,125 

375,000 

493,125 

1957         

1,875,000 

101,250 

375,000 

476,250 

1958                   

1,500,000 

84,375 

375,000 

459,375 

1959         

1,125,000 

67,500 

375,000 

442,500 

I960         

750,000 

50,625 

375,000 

425,625 

1961         .          

375,000 

33,750 

375,000 

408,750 

1962         

16,875 

375,000 

391,875 

Total  

16,281,607 

15,000,000 

31,281,607 

TABLE  35. — Schedule  of  interest  and  principal,  third  bond  issue— 

$40,000,000. 

[Interest  assumed  6  per  cent.] 


Tor. 

Total  first- 
issue  pay- 
ment. 

Total  second- 
issue  pay- 
ment.i 

Total  for 
both  issue. 

1912     

$16,000 

$16  000 

1913 

114  800 

114  800 

1914  

311,100 

311  100 

191J  

514,300 

514  300 

1916 

688  000 

OSS  000 

1917  

.120,000 

1,120*000 

1918  

,104,000 

$225,247 

1,329  247 

1919  

,088,000 

385,110 

1,473  no 

1920  .  

072,000* 

573,750 

1,645  750 

1921  

,056,000 

585,000 

1,641  000 

1922  

,040,000 

675  000 

1  715  000 

1923  

,024,000 

1  050,000 

2,074  000 

1924  

008.000 

1  033,125 

2  041  125 

1925  

992  000 

1  016,250 

2  008  250 

1926  

970  000 

999  375 

1  975  375 

1927  

!K>0  000 

982  500 

1  942  500 

1928  

944  000 

965  625 

1  909  625 

1929  

928,000 

948  750 

1  876  750 

1930  

012  000 

931,  875 

1  843  875 

1931  i  

8%  000 

915  000 

i  811*000 

1932  A  

RSO  000 

898  125 

1  778  125 

1933  1  

864  000 

881  250 

1  745'  250 

1934  B,  

848,000 

864  375 

1  712*  375 

1935  -.-.J  

832  000 

847  500 

1  679  500 

1936  

SIC  000 

830  625 

1  646  625 

1937  

ROO  000 

813  750 

1*613*  750 

1938  

784  000 

796  875 

l'  580*  875 

1939  I  

768  000 

780  000 

1*  548'  000 

1940  

752  000 

763  125 

l'515'  125 

1941  

736  000 

746  250 

l'  482*  250 

•  1942  

720  000 

729  375 

l'  449*  375 

1943  

704  000 

712  500 

1*  416*  500 

1944  

688  000 

695  625 

1  3S3  625 

1945  

672  000 

678  750 

1*350*  750 

1946  

656  000 

661  875 

l'  317*  875 

1947  

640  000 

645  000 

1*285*  000 

1948  

624  000 

628  125 

1*  252*  125 

1949  

608  000 

611  250 

1*  219*  250 

1950  

592  000 

594  375 

1*  186*375 

1951  

576  000 

577  500 

1*  153*  500 

1952  

560  000 

560  625 

1*  120*  625 

1953  

544  000 

543  750 

1*  087*  750 

1954  

528  000 

526  875 

1*  054*  875 

1955  

512  000 

510  000 

1*022*000 

1956  

496  000 

493  125 

9S9  125 

1957  

480  000 

476  250 

956  250 

1958  

464  000 

459  375 

923  375 

1959  

448  000 

442  500 

890*500 

1960  

432  000 

425  625 

857*  625 

1961  

416  000 

408  750 

824*750 

1962  

391  875 

391*  875 

Total  

36  204  200 

31  281  607 

67  485  807 

Actual  amount  sold  is  $13,000,000  only. 

TABLE  34. — Showing  approximate  total  bond  requirements,  first 
and  second  issues. 

I  All  totals  include  both  principal  retired  and  interest  from  1912  to  1962,  inclusive,  by 

years.] 


Year. 

Principal 
outstanding. 

Interest  for 
the  year. 

Principal 
repaid. 

Total  pay- 
ments. 

1920... 

'$3,000,000 

1921 

*6  000  000 

1  1135  000 

$135  000 

1922 

J  12  000  000 

315  000 

315  000 

1923 

»  21  000  000 

675  000 

675  000 

1924 

'30  000  000 

1  215  000 

1,215,000 

1925 

40  000  000 

1  755  000 

1,755  000 

1928 

39  000  000 

2  355  000 

$1  000  000 

3,355,000 

1927     . 

38  000  000 

2  310  000 

1  000  000 

3,310  000 

1928 

37  000  000 

2  265  000 

1  000  000 

3,265,000 

1929 

36  000  000 

2  220  000 

1  000  000 

3,220  000 

1930.. 

35  000  000 

2  160  000 

1  000  000 

3,  160,  000 

1931  

34,000  000 

2  100  000 

1  000  000 

3,100,000 

1932.    ... 

33,000  000 

2,040  000 

1  000  000 

3,040,000 

1933  

32,000  000 

1,980,000 

1,000,000 

2,980,000 

1934  

31,000  000 

1,920  000 

1.000,000 

2,920,000 

1935  -.  

30,000  000 

1,860  000 

1,000,000 

2,  860,  000 

1936  

29  000  000 

1,800,000 

1,000,000 

2,800,000 

1937  

28,000,000 

1,740,000 

1,000,000 

2.740,000 

1938  

27,000,000 

1,680,000 

1,000,000 

2,680,000 

1939  

26,000,000 

1,620,000 

1,000,000 

2,620,000 

1940  

25,000,000 

1,560,000 

1,000,000 

2,560,000 

1941 

24  000  000 

1  500  000 

1  000  000 

2  500  000 

1942 

23  000  000 

1  440  000 

1  000  000 

2  440  000 

1943 

22  000  000 

1  380  000 

1  000  000 

2  380  000 

1944 

21  000  000 

1  320  000 

1  000  000 

2  320  000 

1945 

20  000  000 

1  260  000 

1  000  000 

2  260  000 

1946 

19  000  000 

1  200  000 

1  000  000 

2  200  000 

1947 

18  000  000 

1  140  000 

1  000  000 

2,140  000 

1948  

17,000,000 

1,080,000 

1,000,000 

2,080,000 

1949 

16  000  000 

1  020  000 

1  000  000 

2  020  000 

1950 

15  000  000 

960  000 

1  000  000 

1  960,000 

1951 

14  000  000 

900  000 

1  000  000 

1  900,000 

1952  

13,000,000 

840,00(1 

1,000,000 

1,840,000 

1953 

12  000  000 

780  000 

1  000  000 

1  780,000 

1954.       ..  . 

11  000  000 

720  000 

1  000  000 

1,720,000 

1955 

10  000  000 

660  000 

1  000  000 

1,660,000 

1956 

9  000  000 

600  000 

1  000  000 

1,600,000 

1957 

8,000  000 

.no  ODD 

1  000,000 

1,540  000 

1958  

7,000  000 

4SO  000 

1  000,000 

1  480,000 

1959 

6,000  000 

420  000 

1,000,000 

1,420,000 

1960 

5  000  000 

360,000 

1,000,000 

1,360,000 

1961      ... 

4,000  000 

300,000 

1,000,000 

1,300,000 

1962  

3,000,000 

240,000 

1,000,000 

1,240,000 

1963   

2,000,000 

180,000 

1,000,000 

1,180,000 

1964  

1,000,000 

120,000 

1,000  000 

1,120,000 

1965.        ..  . 

60,000 

1,000,000 

1,060,000 

Total      

53,205  000 

40,  000,  000 

93  205,000 

1  $3,000,000  sold  Mar.  2, 1920,  at  discount  of  $221,160.50,  at  4j  per  cent  nominal  rate. 
'  Amounts  sold  are  assumed. 

TABLE  36. — Shouting  approximate  total  highway  bond  require- 
ments, first,  second,  and  third  issues.1 

I  All  totals  include  both  principal  retired  and  interest  from  1912  to  1965,  inclusive,  by 

years.) 


Year. 

Total  for 

three  issues. 

Year. 

Total  for 
three  issues. 

1912  

$16,000 

1940  

$4  075,125 

1913  

114  800 

1941..    

3  982  250 

1914  

311  100 

1942.. 

3  889  375 

1915..          .  .  .  . 

514  300 

1943.. 

3  796  500 

1916..          

688  000 

1944  . 

3  703  625 

1917  

1  120  000 

1945.. 

3  610  750 

1918.. 

1  329  247 

1946  . 

3  517  875 

1919..   .    .   . 

1  473  110 

1947  .  . 

3  425  000 

1920 

1  645  750 

1948 

3  332  125 

1921  . 

1  776  000 

1949 

3  239  250 

1922  

2,030,000 

1950  

3,146,375 

1923  

2,749,000 

1951  

3,053,500 

1924  

3,256  125 

1952  

2,960,625 

1925  

3,763,250 

1953  

2,  867,  750 

1926  

5,330,375 

1954  

2,774,875 

1927  

5,252  500 

1955  

2  682,000 

1928  ,.  .  . 

5  174  625 

1956  

2  589,125 

1929  

5  096  750 

1957  

2  496  250 

1930  

5  003  875 

1958.. 

2  403  375 

1931  

4  911  000 

1959  .  . 

2  310  500 

1932  

4  818  125 

I960.. 

2  217  625 

1933.. 

4  725  250' 

1961  .  . 

2  124  750 

1934  
1935  

4,632,375 
4.539,500 

1962  
1963  <t.  

1,631,875 
1,180,000 

1936  .  . 

4  446  625 

1964         "%. 

1  120  000 

1937  

4.353,750 

1965  

1,060,000 

1938 

4  260  875 

1939  

4  168  000 

Total  

160,690,807 

1  Assumed  completely  sold. 


1  Table  assumes  last  installment,  $2,000,000,  of  second  issue  sold,  and  interest 
rate  of  6  per  cent  for  third  issue,  and  assumes  also  the  sales  indicated  in  detailed 
table  showing  interest  and  principal  of  third  bond  issue. 


135 


The  list  of  highways  laid  out  by  the  commission  in 
compliance  with  the  highway  act  of  1909  and  the  ad- 
joined list  of  highways  described  in  the  laws  of  1915 
and  1919  to  be  built  under  the  respective  bond  issues 
of  those  years  are  given  below : 


FIRST  BOND  ISSUE. 


Route. 

From— 

To-                          Mileage. 

1 

Crescent  City                                       371-  2 

2 

do 

SariDiego..!       481.8 

3 

Oregon  fine            291.  3 

4 

do 

Los  Angeles  359.  0 

5 

Santa  Cruz  via  Oakland  116.9 

6 

Woodland  Junction  14.3 

7 

Benicia                                 .                   142.  7 

g 

Cordelia,  via  Napa  38.6 

9 

San  Bernardino  53.5 

10 

Hanford  13.2 

It 

Placerville     .                                        46.5 

12 

Fl  Ontt>                                             127-  5 

13 

Salid* 

Sonora  49.2 

14 

Albany 

Martinex  20.6 

15 

Colusa     8.7 

16 

Hopland 

Lakeport  19.3 

17 

Nevada  City...            .                        33.4 

IS 

Merced             

Mariposa  39.  2 

19 

Riverside  17.7 

20 

Redding 

Weavervflle                                           50.  0 

21 

Orovffle  .                                       ;             7.0 

22 

TIoHistpr                                                                    7.  1 

23 

Bridgeport  337.  5 

24 

San  Andreas  36.  6 

25 

Nevada  City 

Downievilie.  .      .                                  47.0 

28 

Alturas                                                 151.  1 

29 

Red  Bluff 

Susanville.  .  .  .                                       100.0 

30 

34 

Jackson                                                  34.  4 

Total     .                   

3,082.3 

SECOND  BOND  ISSUE. 


10     Hanford 

San  Lucas  

98.25 

....    ElPortaL  

32.60 

2Q     Douglas  CHv 

..    Route  1,  Arcata  

102.00 

Yuma,  via  El  Centre..  .    . 

|      V, 

31           do 

Barstow  

76.33 

32     Route  4  near  Califs 

Gilroy.  

83.45 

33     Rout*  4  near  Bakersfield 

Paso  Robles  .... 

91.22 

Total   

679.71 

•"•|  

THIRD  BOND  ISSUE. 


58 
60 
57 
55 
53 
»37 
15 
«38 
1 
51 
63 
Ml 
21 
Ml 
49 
64 
50 
62 

61 

59 
48 
56 
46 

29 

22 

10 
43 
47 
52 
54 

Mojave 

N'efltllfis.  via  Barstnw-.. 

255 
86 
202 
67 
24 
95 

}           212 

40 

24 
40 
10 
27 
20 
32 
100 
35 
10 

10 

40 
47 
97 

177 

53 

8 

36 
14 
20 
5 
12 

Freemans,  via  Bakersfield  
Ranta  Cmr 

Rio  Vista                                     Fairfi«M 

Auburn                                .     .      Verdi  

Ukiah 

Emigrant  Gap  
TahoeCity  

Oregon  line 

Crescent  City 

Santa  Rosa  "                                Shefiville   

Big  Pin?  Oasis  ......  

1  PlacerviUe  ,  .  .          Sportsman's  Hall   .....   ... 

'  OrovUle                    Omncv  

General  Grant  National  Park.. 
Calistoga 

Kings  "River  Canyon  

Lower  Lake  '.  

Mecca 

Blrthe      

Lower  Lake  .  

Pine    Flats   in    San    Gabriel 
Canyon. 
Mount  Wilson  Road,  via  Ar- 
royo Seco. 
Bailevs  

La  Canada  

Lancaster  

McDonalds  

Mouth  of  Navarro  River.  

San  Simeon  

Klamath  River  bridge,  route  3. 

Route  1,  near  mouth  of  Kla- 
math  River. 
Vpvad*  State  line   , 

Pacheco     Pass     Road     into 
HoULster. 

Sequoia  National  Park  

P*>ep  Ofipk       .         

Metcalf  Creek  

Orland  . 

Chico     

Alto  

Drytown  

TotaL 

1,798 

1  Route  30  has  been  abandoned,  and  route  21  extended  to  cover  approximately 
the  same  mileage. 

!  Ninety-five  miles  maintained  under  special  appropriation  roads. 
'  Fifteen  miles  maintained  under  special  appropriation  roads. 

*  Ten  miles  maintained  under  special  appropriation  roads. 

•  Fourteen  miles  maintained  under  special  appropriation  roads. 


Tabulation    of  State   special  appropriation   roads    tnkcn   over 

from  department  of  engineering. 
Division  I: 

None  in  this  division. 
Division  II:  Miles. 

Lassen  County,  route  28,  Lassen  State  highway 29.  0 

Sierra  County  (a),  route  36,  Sierra  State  highway__      2.9 
Trinity   County,   route   35,   Trinity-Humboldt   State 
road 33. 0 

Total  for  Division  II_ _  64.9 


Division  III: 

Alpine  County — 

Route  34,  Carson  Pass  branch 14. 1 

Route  23,  trunk  line,  El  Dorado  County 

line  to  Picketts 2.3 

Route  23,  Picketts  to  Woodfords 6.3 

Route  23,  Woodfords  to  Loop 12.  5 

Route  24,  Calaveras  branch,  junction  of  Al- 
pine trunk  to  Calaveras  County 31.  8 

Route  13,  Sonora-Mono  Road,  Sonora  Pass 
to  Brightmans  Flat 12. 5 


Total  ___________________________________________ 

Arnador  County,  route  34,  Alpine  Road,  Carson  Pass 
Basin  __________________________________________ 

Butte  County,  route  45,  Westerly  County,  line  to 
Biggs  ------------------------------------------ 

Calaveras  County,  route  24,  Big  Trees  to  Alpine 
County  line  _____________________________________ 

Eldorado  County  — 

Route  11,  Placerville  to  State  line  ________    65.  0 

Route  38,  Myers-McKinnaTs  ______________    24.  0 

Route  23,  Osgoods  to  Alpine  County  line—     10.  7 


79.  5 

57.  8 

9.  3 

22.  6 


Total  ___________________________________________ 

Glenn  County,  route  45,  Willows  to  east  county  line  __ 
Mariposa  County,  route  40,  Tioga  Road  _____________ 

Nevada  County  — 

Route  37,  Emigrant  Gap  _________________    21.  1 

Route  38,  McKinneys-Donner  Lake  _______      5.  6 


99.  7 

22.  4 

2.  2 


Total 26. 7 

Placer  County — 

Route  37,  Auburn-Emigrant  Gap 43.  85 

Route  37,  Emigrant  Gap 14.7 

Route  38,  McKinneys-Donner  Lake 2L  8 

Route  38,  Myers-McKinneys 1. 25 

Route  39,  Tahoe  City-Crystal  Bay 11.  2 


Total  __________________________________________ 

Sierra  County,  route  37,  Nevada  County  line  to  State 


line 


92.  8 
12.  5 


Tuolumne  County  — 

Route  13,  Sonora-Mono  __________________    31.  5 

Route  40,  Tioga  Road    (exclusive  of  Yo- 
semite  Park)  _________________________    50.  8 

Total  ___________________________________________    82.  3 

Total  for  Division  III_.  _  527.  3 


Division  IV: 

Santa  Cruz  County,  route  42,  California  Redwood 
Park  ..  16.  0 


Division  V: 

None  in  this  division. 


Tabulation   of   Htate  special  appropriation  roads   taken   over 
from  department  of  engineering — Continued. 

Division  VI :  Miles. 

Fresno  County,  route  41,  Kings  River  Canyon  (built) _     14.  5 
Mono  County — 

Routes  13  and  23,  Sonora  Pass  to  Bridge- 
port  : 34.0 

Route  40,  Mono  Lake  Basin__  12.  3 

Route  4,0,  Tioga  Pass  to  Mono  Lake  Basin 

River 1. 0 

Route  23,  Alpine  County  line  to  Little  An- 
telope Valley 9.4 

Route  23,  Little  Antelope  Valley  to  junc- 
tion, Sonora-Mono  Road 17.0 

Total 73.7 

Total  for  Division  VI__  88.  2 


Tabulation   of   State   special   appropriation   roads    taken   over 
from  department  of  engineering — Continued. 

Division  VII : 

San  Bernardino  County —  Miles. 
Route  43,  end  of  county  pavement  to  most  east- 
erly point  Great  Bear  Lake,  say  60  miles 60.0 


Division 
Division 
Division 
Division 
Division 
Division 
Division 


RECAPITULATION. 

Miles. 

I - 0. 0 

II 64.  9 

III 527.3 

IV 16.0 

V 0.  0 

VI 88.  2 

VII  _.  60.0 


Total _" 756.  4 


APPENDIX  B 


There  follows  a  table  showing  a  comparison  of  the  engineers  estimate  and  final  cost  on  20  selected  jobs  which 
showed  the  greatest  overruns  of  final  costs.     Following  the  table  is  a  discussion  of  these  jobs. 


Comparison  of  engineer's  estimate  and  final  cost  of SO  selected  jobs. 

CONTRACT  JOBS. 


Con- 
tract 

No. 

Divi- 
sion. 

Route. 

County. 

Section. 

Cost  of  labor  and  materials. 

Class  of  work.                                      Engineer's 
prelimi- 
nary. 

Final 
paid. 

Overrun 
(per 
cent). 

2 
215 
235 
207 
227 
HI 
102 
S3 
1.57 
73 

1 
1 
2 
3 
3 
4 
4 
4 
fi 
7 

1 
1 
3 
3 
21 
1 
• 
5 
1* 
2 

Mendocino       '  A     ..   .      Grading.                                                                                           $70  508 

$93,019 

128,878 
24,237 
107,469 
143.778 

m  •  •:•• 

104,555 
86,772 
72,342 
71,091 

32 
36 
58 
38 
34 
52 
31 
35 
35 
30 

do.  F  do  M    >.  .. 

SisWvou.       

A                .   .  do                                                                                                 15  273 

Butte               .                      .... 

da  

do.      100  933 

Sonoma  

o 

da       129  4$2 

Santa  Clara  

• 

Grading    79'  725 

Santa  Crui  

j^ 

do"      63*996 

Mariposa  

A.. 

da           .  .                                                                                   53*  596 

Ventura  

F,G     .. 

15-foot  concrete  base.                                                                   54*  819 

Totals  

.                                                                          741  132 

1,029,120 

39 

DAY-LABOR   JOBS. 


n-74 

2 

3 

Siskiyou.  

A.. 

Grading    

S3  500 

S9  418 

170 

D-2 

3 

11 

Eldorado  

B... 

12-foot  oil  macadam 

25  619 

97*392 

280 

D-5 

3 

11 

do  

C  

til  291 

IfiO  37^ 

160 

1)  hi 

5 

2 

Monterey  

A 

21  352 

51  192 

140 

D~10S 

6 

IS 

Mariposa 

B       .... 

51  195 

141  £06 

160 

D-129 

6 

23 

Mono  

c 

Bridges 

2  "US 

7  158 

210 

D-ll 

. 

San  Diego  

B.r... 

Oil  surfacing  

11.006 

32  240 

190 

2 

..  .  do  

n 

1  13" 

7  679 

570 

7 

2 

Ventura 

A 

5  005 

16  725 

230 

12 

San  Diego  

C 

Grading 

6  000 

26*542 

340 

Totals  

187  503 

549  527 

193 

Inquiry  at  the  office  of  the  State  Highway  Commis- 
sion relative  to  the  reasons  for  the  overruns  shown  in 
the  fore<roin«r  statement  elicited  the  following: 

CONTRACT    JOBS. 

No.  2 :  The  contractor  abandoned  this  job  during  the  winter 
of  1912  and  left  it  in  a  deplorable  condition  so  that  when  the 
Stute  took  over  the  work  considerable  extra  expense  was  in- 
curred in  getting  it  back  into  shape  and  bringing  it  to  comple- 
tion. A  gravel  surfacing  was  also  applied  to  the  job  which  was 
not  contemplated  in  the  preliminary  estimate. 

No.  215 :  Upon  this  contract  there  were  several  slides  aggre- 
gating in  the  neighborhood  of  6,000  cubic  yards.  The  bid  on 
this  contract  was  $24.760.24  over  the  preliminary  estimate. 

No.  235 :  Several  slides  occurred  on  this  job.  which  increased 
the  cost  considerably.  The  contractor's  bid  on  this  job  was 
.'5.843.55  over  the  estimate. 

No.  207:  This  contract  was  completed  by  State  forces  upon 
the  failure  of  the  contractor.  The  excavation  overran  7,425 
cubic  yards  and  the  preliminary  estimate  appears  to  have  been 
somewhat  too  low.  The  cost  of  material  overran  the  estimate 
by  .<4.0S4.35. 

No.  227 :  The  original  estimate  was  apparently  too  low  for 
the  work  at  the  time  bids  were  received.  Excess  yardage  exca- 
vation. 7,516  cubic  yards.  Extra  work.  $10.715.33. 

No.  16 :  Work  on  this  contract  done  by  the  contractor  was 
found  to  be  very  faulty  and  it  was  necessary  for  the  State  to 
replace  considerable  quantities  of  work.  This  contract  was 
completed  by  State  forces  after  the  failure  of  the  contractor,  who 
left  the  work  in  a  deplorable  condition.  There  was  also  an 
increase  in  quantities  of  excavation  and  concrete  put  in  on  this 
job.  which  tended  to  make  the  cost  excessive.  [Note  low  bid 
and  excess  quantities  of  work  done  by  contractor.] 

No.  102:  An  increase  of  49,900  cubic  yards  of  excavation  over 
that  shown  in  the  preliminary  estimate  accounts  for  the  in- 


crease in  cost  of  this  job.  This  increase  in  yardage  was  due  to 
slides,  damage  by  storms,  line  changes,  grade  changes,  etc., 
which  developed  during  the  progress  of  the  work. 

No.  83 :  An  increase  of  39,954  cubic  yards  of  excavation  over 
that  shown  in  the  preliminary  estimate  accounts  for  the  bulk  of 
the  difference  between  the  preliminary  estimate  and  the  final 
cost.  This  increase  in  excavation  quantities  was  due  to  line 
and  grade  changes  to  save  large  redwoods  and  for  other  rea- 
sons which  developed  during  the  course  of  construction. 

No.  157 :  Considerably  more  rock  excavation  was  encoun- 
tered than  had  been  expected,  although  the  total  yardage  (earth 
and  rock)  excavated  was  practically  the  same  as  originally 
estimated.  [The  original  estimate  for  rock  was  $1  a  cubic 
yard  and  the  contract  price  was  $1.50  a  cubic  yard.  The  esti- 
mate for  earth  excavation  was  45  cents  a  cubic  yard  and  the 
contract  price  was  38  cents.] 

No.  73:  The  original  contract  covered  3.58  miles  in  Section 
F,  with  an  optional  extension  of  1.47  miles,  which,  on  account 
of  right-of-way  difficulties,  was  not  included  in  the  contractor's 
work.  This  1.47  miles  was,  however,  improved  about  the  same 
time  contract  No.  73  was  in  progress,  but  by  State  forces  and 
the  charges  carried  under  contract  No.  73.  This  work  amounted 
to  $10,329.38  for  labor  and  probably  about  an  equal  amount 
for  materials,  although  there  is  no  way  of  segregating  the  mate- 
rial charges  on  this  stretch. 

DAY-LABOR  JOBS. 

Except  D-2  and  D-o.  all  day-labor  jobs  Misted  above)  were 
not  advertised  for  bids,  and  so  no  comparison  can  be  made  of 
bids.  There  are  no  final  estimates  of  quantities  on  these  day- 
labor  jobs,  so  there  is  shown  no  comparison  of  quantities  and 
unit  costs. 

D-74:  The  engineer's  preliminary  estimate  for  this  work 
should  be  $23,325.  The  work  originally  contemplated,  at  an 
estimated  cost  of  $3.500  and  covering  0.3  mile,  was  extended 
to  include  1.52  miles.  With  the  coming  of  winter  work  was 


(137) 


138 


shut  down  and  the  following  spring  was  let  under  contract 
No.  235. 

D-2:  The  work  contemplated  originally  was  water-bound 
macadam.  The  construction  was  oil  macadam,  which  item  alone 
increased  the  cost  of  this  work  about  $6,000.  A  much  greater 
amount  of  rock  excavation  was  encountered  than  had  been 
estimated.  A  great  number  of  shallow  rock  cuts  required 
drilling  and  blasting,  the  rock  breaking  into  such  large  pieces 
that  it  was  impracticable  to  use  them  in  the  light  fills.  The 
cost  of  rock  excavation  made  the  unit  cost  of  excavation  exceed- 
ingly high  as  compared  with  the  estimated  unit  costs. 

The  overrun  of  10,000  yards  of  excavation  was  due  to  exca- 
vating 6  inches  below  subgrade  in  rock  and  loose  cuts  to  reach 
the  grade  desired  and  to  the  necessary  waste  of  large  bowlders. 
Figured  at  actual  unit  cost,  the  excess  yardage  increased  the 
cost  of  this  work  about  $14,000. 

An  excess  of  2,600  tons  of  crushed  rock  and  screenings  over 
the  preliminary  estimate  was  necessary  to  complete  the  work, 
at  an  additional  cost  of  approximately  $6,000.  The  final  cost 
also  includes  the  purchase  of  considerable  equipment,  viz :  Oil- 
heating  plant,  tank  wagons,  camp  outfits,  and  other  incidentals 
not  included  in  the  preliminary  estimate. 

D-5:  The  original  estimate  for  this  work  contemplated  a 
water-bound  macadam.  The  construction  was  a  12-foot  concrete 
base.  In  making  the  preliminary  estimate  for  excavation  due 
consideration  was  not  given  the  character  of  the  material  to 
be  excavated.  The  cost  of  drilling  and  shooting  alone  was 
about  one-half  of  the  original  estimated  amount  for  excavation. 

The  final  cost  of  this  work  includes  the  purchase  of  consid- 
erable equipment,  viz :  Paving  mixer,  engine,  pump,  pipe  line, 
paving  equipment,  camp  outfits,  dump  wagon,  etc. 

D-61 :  The  engineer's  estimate  is  for  placing  concrete  base 
on  2.1  miles  (approximately).  The  commission  voted  later  to 
extend  this  work  from  Saguinta  to  the  easterly  boundary,  a 
distance  of  4.34  miles. 

D-108 :  Heavier  rock  excavation  was  encountered  on  this  sec- 
tion than  had  been  contemplated  from  preliminary  examination 


of  the  route,  which  greatly  increased  the  cost  of  the  work.  A 
concrete  culvert  was  built  at  China  Gulch. 

D-129:  The  engineer's  preliminary  estimate  was  for  timber 
bridges.  Plans  were  later  changed  to  make  bridge  floors  of 
concrete.  Also  one-half  mile  of  grading  was  done  under  this 
project. 

D-ll :  The  original  estimate  was  for  oiling  the  pavement  only 
on  these  two  sections.  Additional  work  done,  not  included  in 
the  original  estimate,  consisted  in  oiling  the  shoulders.  The 
shoulders  were  regraded  and  the.  weeds  cut.  On  steep  grades 
in  cuts  the  shoulders  were  excavated  to  a  depth  of  4  inches, 
beach  gravel  and  a  'binder  of  loam  applied  and  rolled.  On 
this  the  regular  shoulder  was  built  Due  to  storm  damage 
and  failure  of  the  water  supply  it  was  necessary  to  establish 
a  new  oil  pit  at  Oceanside,  the  cost  of  same  being  charged 
to  this  project. 

In  addition  to  the  above  oiling  work,  the  bridge  over  Loma 
Alta  Creek  was  back  filled ;  at  two  right-angle  turns  near  Carl 
the  concrete  base  was  widened,  and  concrete  walls  at  both 
abutments  of  the  San  Luis  Rey  Bridge  were  built. 

D-80:  The  engineer's  preliminary  estimate  was  for  placing 
about  0.05  mile  of  concrete  base  in  "  exceptions."  In  addition,  a 
payment  of  $5,766.91  was  made  to  the  Atchison,  Topeka  &  Santa 
Fe  Railroad  as  the  State's  share  of  the  cost  of  an  overhead 
crossing.  Also  a  cattle  pass  was  constructed,  but  the  cost  of 
same  was  not  included  in  the  preliminary  estimate. 

D-13 :  The  engineer's  preliminary  estimate  was  for  oiling 
the  concrete  base  only.  In  addition  to  oiling  the  concrete  base, 
the  shoulders  were  graded  and  oiled.  Portions  of  the  earth 
shoulders  were  replaced  with  gravel.  Storm-  damage  increased 
the  cost  of  the  shoulder  work.  Defective  concrete  was  replaced 
before  oiling,  but  the  cost  of  same  was  not  included  in  the 
preliminary  estimate. 

D-120 :  The  engineer's  preliminary  estimate  was  for  1.42  miles 
of  grading  only.  The  work  was  extended  to  cover  3.18  miles 
and  to  include  the  construction  of  necessary  concrete  culverts, 
placing  of  corrugated  metal  pipe,  and  drainage  ditches. 


APPENDIX  C.— MOTOR- VEHICLE  LEGISLATION 


The  present  motor  vehicle  law  is  known  as  the  Cali- 
fornia motor  vehicle  act  and  is  a  result  of  amendments 
in  1919  to  previous  legislation.  It  contains  37  sections. 
It  is  administered  almost  exclusively  by  the  motor- 
vehicle  department  with  the  aid  of  local  police  au- 
thorities. The  State  highway  department  is  charged, 
as  previously  stated,  with'  the  expenditure  of  one-half 
the  net  registration  fees,  with  the  granting  of  special 
permits  to  traffic,  with  the  authority  to  decrease  legal 
load  limits,  and  with  the  duty  of  preparing  blanks  for 
county  officers  to  report  expenditures  from  the  county 
road  funds  with  respect  to  the  motor-vehicle  money 
returned  thereto. 

The  present  law  is  a  development  from  the  experi- 
ence of  preceding  years  and  supersedes  legislation  of 
1905,  1907,  1913.  1915.  and  1917.  It  is  understood  that 
plans  are  now  under  way  through  the  California  Auto- 
mobile Association  in  particular  to  advise  amendments 
to  the  present  law.  The  evolution  of  the  main  provi- 
sions of  the  law  is  indicated  below  under  the  respective 
headings.  There  are  minute  provisions  in  the  law  in 
addition  to  those  summarized  below  covering  the  rules 
of  the  road  and  many  details  found  necessary  as  the 
automobile  traffic  has  developed,  as,  for  example,  use 
of  a  mirror  when  a  load  obstructs  the  driver's  view 
tn  the  rear,  the  passing  of  slow  vehicles  proceeding  in 
the  same  direction,  etc.  Many  of  these  provisions  are 
obviously  the  result  of  experience  and  are  necessary. 

The  provisions  with  respect  to  registration  require 
full  data  with  respect  to  kind  of  vehicle  and  particu- 
larly its  horsepower,  from  which  the  fee  is  computed; 
hut  it  would  be  advantageous  to  provide  that  a  classi- 
fication of  vehicles  registered  should  result  from  the 
total  annual  registration,  so  that  the  numbers  of 
vehicles  of  all  the  various  capacities  and  weights  could 
be  immediately  determined  by  the  State  highway  de- 
partment as  an  aid  to  future  design.  It  is  noteworthy 
that  motor  trucks  with  pneumatic  tires  are  not  spe- 
cifically segregated  from  other  motor  vehicles.  Accord- 
ingly the  number  of  vehicles  used  in  the  State  for  com- 
mercial hauling  is  subject  to  a  corresponding  error. 
Tracks  with  pneumatic  tires  are  also  exempt  from 
restriction  with  respect  to  total  load  per  inch  width 
of  tire.  It  is  noteworthy  that  the  laws  of  1917  and  1919 
limit  maximum  width  of  loads  of  loose  material  to  10 
feet. 

REGISTRATION  AND  REVENUE. 

The  present  law  requires  annual  registration  on 
blanks  furnished  by  the  motor  vehicle  department  call- 
ing for  a  description  of  the  vehicle.  The  fee  for  motor 
cycles  and  trailers  is  $2  and  for  automobiles  40  cents 
per  horsepower  or  major  fraction,  as  determined  by  the 
formula  of  the  Association  of  Licensed  Automobile 
Manufacturers.  There  is  a  surcharge  for  every  motor 
vehicle  equipped  with  other  than  pneumatic  tires  and 
used  for  commercial  purposes,  as  follows:  Unladen 
and  under  2  tons  weight,  $5;  unladen  and  between  2 
and  3  tons,  $10;  unladen  and  between  3  and  5  tons,  $15 ; 
unladen  and  over  5  tons,  $20. 


The  registration  fee  for  electric-motor  vehicles  is  $5 
straight,  and  the  above  surcharges  apply  to  electric 
vehicles.  Chauffeur's  licenses  are  $2.  'Of  all  fees 
accrued  to  the  motor-vehicle  fund,  one-half  the  net 
revenue  is  paid  to  the  respective  county  road  funds 
where  originated  and  the  balance  is  for  the  use  of  the 
State  Highway  Commission  for  the  repair  and  im- 
provement of  State  highways. 

The  original  fee  for  registration  in  the  act  of  March 
22,  1905,  was  $2  and  annual  registration  was  not  re- 
quired. Any  net  revenue  accrued  to  the  general  fund 
of  the  'State.  The  amendment  of  1907  made  no  change, 
but  the  act  of  May  13,  1913,  provided  annual  registra- 
tion, with  a  graduated  fee  from  $2  for  motor  cycles  to 
$30  for  automobiles  exceeding  60  horsepower,  and  cred- 
ited to  the  motor  vehicle  fund.  The  act  of  May  11, 
1913,  revised  the  schedule  of  fees  to  the  present  horse- 
power formula. 

SPEEDS  AND.  WEIGHTS. 

The  present  law  permits  a  maximum  speed  of  35 
miles  per  hour  for  automobiles  outside  of  incorporated 
cities  and  closely  built-up  sections  when  the  driver  has 
uninterrupted  view  and  nothing  ahead  for  400  feet, 
etc.,  otherwise,  30  miles  per  hour.  In  closely  built-up 
sections  the  legal  rate  is  20  miles  per  hour,  and  where 
approaching  bridges,  crossings,  bad  curves,  and  inter- 
sections it  is  10  miles  per  hour. 

There  has  not  been  much  change  in  the  speed  regula- 
tions since  1905,  except  to  raise  the  permissible  maxi- 
mum from  20  miles  gradually  to  35  miles,  and  the 
minimum  from  4  to  10  miles,  and  to  redefine  the  con- 
ditions under  which  the  respective  speeds  are  effective. 

There  is  no  mention  of  weight  of  vehicles  until  1917. 
The  law  of  that  year  provides  that  except  with  special 
permit  in  writing  from  the  department  of  engineering 
no  four-wheel  vehicles  shall  exceed  15  tons  gross,  and 
no  six-wheel,  three-axle  vehicle  20  tons,  unless  such 
vehicles  operate  on  fixed  rails  or  tracks.  In  this  law 
also  appears  for  the  first  time  the  limitation  of  800 
pounds  per  inch  width  of  tire  of  material  other  than 
metal,  and  of  metal  600  pounds,  or  when  the  material 
is  part  metal  except  with  written  permit  or  in  the  case 
of  movable  trucks  (caterpillar  engines)  as  above  de- 
scribed. No  more  than  two  trailers  are  allowed. 

In  this  law  also,  in  section  22  (6),  appears  a  regula- 
tion regarding  speed  of  trucks: 

No  motor  or  other  vehicle  carrying  a  weight  in  excess  of 
9,000  pounds,  Including  the  vehicle,  shall  be  operated,  driven, 
drawn,  or  otherwise  moved  on  any  public  highway  or  bridge 
at  a  rate  of  speed  greater  than  25  miles  an  hour;  no  motor 
or  other  vehicle  carrying  a  weight  in  excess  of  12.000  pounds, 
including  the  vehicle,  shall  be  operated,  driven,  drawn,  or 
otherwise  moved  on  any  public  highway  or  bridge  at  a  rate 
of  speed  greater  than  15  miles  an  hour :  no  motor  or  other 
vehicle  carrying  a  weight  in  excess  of  24.000  pounds,  includ- 
ing the  vehicle,  shall  be  operated,  driven,  drawn,  or  otherwise 
moved  on  any  public  highway  or  bridge  at  a  rate  of  speed 
greater  than  6  miles  an  hour :  Provided  further.  That  any  such 
motor  vehicle  or  trailer,  with  tires  made  wholly  or  partly  of 
metal,  may  be  operated,  driven,  drawn,  or  otherwise  moved,  'sub- 
ject to  the  other  provisions  of  this  act,  up  to  10  miles  an  hour,  if 


(139) 


140 


it  lie  equipped  with  springs  and  if  the  rear  wheels  be  not  less 
than  46  inches  in  diameter,  with  bearing  surface  of  not  less  than 
18  inches ;  and  provided  further,  however,  anything  to  the  con- 
trary herein  notwithstanding,  that  no  motor  or  other  vehicle 
constructed  or  otherwise  adapted  for  carrying  loads  weighing 
4  tons  or  more,  exclusive  of  such  vehicle,  shall  be  operated, 
driven,  drawn,  or  otherwise  moved  upon  the  public  highway, 
whether  laden  or  unladen,  at  a  rate  of  speed  exceeding  15  miles 
an  hour;  and  provided  further,  that  nothing  contained  in  this 
subdivision  shall  apply  to  motor  vehicles  equipped  with  pneu- 
matic tires. 

The  law  of  1919  adds  a  new  part  to  the  correspond- 
ing subsection  as  follows : 

The  supervisors  of  any  county  shall  have  power  to  require  a 
lighter  load  on  county  roads  in  their  respective  counties.  Any 
persons  violating  the  provisions  of  this  subsection  shall  be 
guilty  of  a  misdemeanor  and  be  liable  to  a  penalty  of  $20  for 
each  full  ton  in  excess  of  the  limitation  herein  imposed,  and 
any  peace  officer  making  the  arrest  of  the  owner  or  driver  of 
any  vehicle  violating  the  provisions  of  this  subsection  shall 
keep  said  vehicle  with  its  load  in  his  custody  until  such  time  as 
saiil  penalty  shall  have  been  paid  :  Provided,  That  the  owner  or 
driver  of  any  such  vehicle  may  give  to  said  peace  officer  a  bond 
in  favor  of  the  State  of  California  in  case  of  State  highways, 
and  in  the  name  of  the  county  in  which  the  offense  has  occurred 
in  the  case  of  county  roads,  conditioned  to  secure  the  payment 
of  said  penalty  within  the  time  prescribed  in  said  bond.  Fur- 
thermore, any  peace  officer  may  require  the  driver  to  drive  any 
such  vehicle  to  the  nearest  public  scale  to  be  designated  by  such 
peace  officer  for  the  purpose  of  establishing  the  weight  and  the 
load  of  any  such  vehicle. 

FLANGES  AND  CLEATS. 

The  present  law  prohibits  protuberances  of  metal 
or  wood  in  excess  of  one-fourth  inch  beyond  the  trac- 
tion surface  of  the  tire,  except  on  traction  engines  oper- 
ating on  unimproved  roads. 

The  use  of  chains  of  reasonable  proportions  is  per- 
mitted when  necessary.  Traction  engines  or  tractors 
with  movable  tracks  may  operate  even  with  transverse 
corrugations  under  special  written  permits  from  the 
department  of  engineering  (State  Highway  Commis- 
sion). 

No  mention  of  cleats  or  chains  occurs  in  the  laws 
until  1913,  when  the  present  provisions  were  inserted, 
except  that  they  were  not  made  applicable  until  1917 
to  protuberances  made  of  wood. 

FOREIGN  CARS. 

The  present  law  exempts  nonresidents  in  the  State  of 
California,  when  sojourning  in  the  State,  from  State 


registration  for  three  months,  provided,  that  the  owner 
applies  on  a  special  registration  form,  without  charge, 
within  24  hours  for  a  distinctive  number  plate.  This 
was  the  law  in  1917.  Previous  laws  provided  that  State 
registration  should  not  be  required  if  the  owner  dis- 
played his  own  State  number  in  compliance  with  the 
State  law.  The  law  of  1913  required  the  display  to  be 
in  accordance  with  the  California  law  and  that  the 
plate  should  be  clean  and  illuminated  at  night.  The 
law  of  1915  provided  that  foreign  corporations  doing 
business  in  California  shall  not  be  exempt  from  State 
registration. 

LOCAL    AUTHORITIES. 

The  law  of  1919  permits  local  authorities  certain 
jurisdiction  with  respect  to  street  intersections,  cross- 
ings, vehicles  for  hire,  processions,  etc. ;  with  respect 
to  local  cemeteries  and  with  respect  to  vehicles  exceed- 
ing 1-ton  capacity  used  exclusively  to  carry  merchan- 
dise, which  vehicles  may  be  required  to  use  certain  one- 
way streets.  The  local  authorities  have  otherwise  no 
power  to  enact  ordinances  with  respect  to  speed  limi- 
tations in  conflict  with  the  State  law.  The  preceding 
laws  granted  local  authorities  certain  jurisdiction  with 
respect  to  setting  aside  roads  for  speed  tests  and  races. 

PENALTIES. 

The  law  of  1919  provides  general  penalties  for  vio- 
lations of  the  provisions  of  the  motor  vehicle  law  with 
a  maximum  fine  not  exceeding  $500  or  imprisonment 
not  exceeding  six  months,  or  both,  or  for  the  revocation 
of  the  operator's  license  for  a  year  in  addition.  The 
penalties  are  greater  than  those  of  preceding  laws.  The 
law  of  1905  provided  the  maximum  fine  of  $100  or  im- 
prisonment not  exceeding  30  days,  or  both.  The  law 
of  1913  provided  for  suspension  or  revocation  of  the 
operators  license  under  certain  conditions.  The  law 
of  1917  provided  that  the  State  highway  department 
should  have  power  to  hold  hearings  and  to  revoke  or 
suspend  licenses  of  operators  for  certain  violations 
(through  the  motor  vehicle  department)  and  in  certain 
cases  on  its  own  initiative  to  revoke  a  license  in  case 
of  reckless  driving  or  where  the  operator  was  con- 
cerned in  an  accident.  This  provision  with  respect  to 
the  State  highway  department  was  not  retained  in  the 
1919  law. 


APPENDIX  D 


SELECTED  TYPICAL  CROSS  SECTIONS 

SHOWING 

LINES  OF  EQUAL  MOISTURE  CONTENT 

IN  SUBGRADES 


ONE    UNIT    EQUALS    5    FKET 


LEGEND 

The  cross  sections  are  plotted  from  levels.  The  straight 
lines  show  borings  and  are  crossed  at  sample  points. 
The  figures  on  lines  of  equal  moisture  show  moisture 
content  in  per  cent. 


(141) 


142 


PLATE    LJX. 


143 


PLATE    LX. 


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148 


PLATE    LXV. 


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APPENDIX  F.— MOTOR  TRUCK  FREIGHT  LINES 


The  motor  freight  transportation  business  is  well 
systematized.  The  membership  of  the  California  State 
Draymen's  Association,  organized  April  19,  1919,  in 
November.  1920,  included  80  per  cent  of  the  commercial 
hauling  concerns  operating  under  State  railroad  com- 
mission license,  and  representing  90  per  cent  of  the 
vehicles  used  for  this  purpose.  An  outgrowth  of  this 
State  organization  was  a  national  organization  of  simi- 
lar interests  perfected  in  June.  1920,  at  Chicago,  with 
one  of  the  California  association  officers  as  general 
manager. 

The  California  organization  has  30  affiliated  and  sub- 
sidiary county  and  district  associations  through  which 
it  operates.  Its  purpose  is  the  promotion  and  protec- 
tion of  the  motor  trucking  business  through  propa- 
ganda and  suitable  legislation.  To  this  end  it  is  study- 
ing the  use  of  the  motor-truck  transportation  for  raw 
juid  finished  products,  the  production  and  distribution 
of  which  it  is  now  investigating.  It  is  also  preparing 
to  fipht  any  adverse  legislation  at  the  coming  session  of 
the  State  legislature. 

The  rates  of  licensed  truck  companies  are  subject  to 
approval  by  the  State  railroad  commission. 

Few  companies  operate  on  a  flat  charge  per  ton-mile. 
Their  tariffs  are  based  on  commodity  classes  somewhat 
similar  to  those  of  the  railroads,  and.  the  charge  is  ad- 
justed on  the  basis  of  hundredweight-miles.  Many  fix 
a  minimum  charge  for  handling  parcels.  Both  local  and 
through  tariffs  are  used.  Local  tariffs  frequently  apply 
to  a  territory  and  are  not  computed  strictly  on  a  mile- 
age basis.  In  many  instances  the  service  includes  house- 
door  collection  and  delivery,  but  a  number  of  com- 
panies transport  only  between  their  several  storage 
places.  Some  of  the  latter  make  local  delivery  for  a 
fee,  while  others  require  the  consignee  to  arrange  for 
such  service. 

Commercial  hauling  under  supervision  of  the  rail- 
road commission  is  only  a  small  part  of  that  done.  To 
avoid  the  restrictions  imposed  by  the  commission  for 


common  carrier's  and  to  obviate  the  delays  of  public 
hearings  in  regard  to  extensions  of  route,  changes  of 
schedule,  etc..  many  operators  organize  their  business 
as  a  contract  haul.  Agreements  require  delivery  along 
certain  routes  or  between  fixed  termini,  either  for  fixed 
or  indeterminate  periods.  In  this  way  not  only  inter- 
urban  trucking  but  transportation  of  fruits,  vegetables, 
dairy  products,  and  grain  from  farm  to  canneries, 
depots,  creameries,  etc.,  is  done.  In  the  southern  part 
of  the  State  quite  a  number  of  routes  are  established 
to  haul  to  market  all  agricultural  products  grown  on 
certain  farms  and  to  deliver  merchandise,  feed,  etc. 
The  fruit  and  grain  crops  of  the  north  are  handled 
almost  entirely  by  outside  trucks,  which  move  from 
section  to  section  with  the  ripening  of  crops.  (The 
standard  charge  for  handling  this  season's  rice  crop 
was  25  cents  per  ton-mile.)  It  is  estimated  that  not  less 
than  4.000  trucks  are  used  in  California  for  contract 
hauling  for  entire  or  part  time  throughout  the  year. 

In  order  to  arrived  at  a  weighted  approximate  aver- 
age through  rate  per  ton-mile,  the  estimated  gross  re- 
ceipts per  week  from  48  lines  were  divided  by  the  ton- 
miles  involved  in  the  estimated  tonnage  handled  be- 
tween termini.  There  were  122,765  ton-miles  of  serv- 
ice rendered  at  a  total  charge  of  $25,535.85,  making 
the  cost  20.8  cents  per  ton-mile.  These  lines  traverse 
practically  all  the  paved  State  highways,  as  well  as 
lateral  roads,  both  State  and  county.31 

"  Some  of  the  extreme  average  rates  found  by  this  method  of  calcula- 
tion but  regarded  as  not  very  reliable  are  the  following : 

PART  PAVED   STATE  HIGHWAY,  PART  ONPAVKO. 

Mile  haul.  Per  ton-mile. 

High — 17 $1.54 

.  95 


20_ 
15- 
38- 


.80 
.69 


ENTIRELY    PAVED. 


Low — 126 JO.  03 

130 .  06 

126 .  OT 

27 .  15 


(149) 


APPENDIX  G 


TRAFFIC  DIAGRAMS 

INDICATING 

16-HOUR-DAY  TRAFFIC  ON  CALIFORNIA 

STATE  HIGHWAYS 


LEGEND 

The  curves  show  the  total  of  all  vehicles,  the  total  of 
going  and  of  coming  vehicles,  the  total  of  automobiles 
and  the  total  trucks  all  plotted  to  a  vertical  scale  of 
500  vehicles  to  the  unit  and  a  horizontal  scale  of  20 
miles  to  the  unit. 


(151) 


152 


PLATE    LXVI. 


VSOH  V1KIVS 
0       I1VTCO 


153 


PLATE    LXVII. 


154 


PLATE    LXVIII. 


ROUTE  NO  21 
OROVILLE-LATERAU 


ROUTE  NO.  17 

NEVADA  CITY  LATERAL 


N.ANDE. 
S7ANO  W. 
TRUCKS 


NO.3.  5ACRAMENTO  TO  THE  OREGON  LINE 


155 


PLATE    LXIX. 


156 


PLATE    LXX. 


HAYWARD 
SAN  LCANDRO 


ROUTE  NO.  5 


STOCKTON  TO  SANTA  CRUZ  VIA  OAKLAND 


157 


PLATE    LXXI. 


158 


PLATE    LXXII. 


ROUTE    NOS.  12  AND  26 


ROUTE  NO.  12 

SAN  DIEGO    EL  CENTRO 


1500 


LU 


RQUTE  NO.  Z6 

SAN  BERNARDINO  TO  EL  CENTRO 

TOTAL  VEHICLES 


a  AUTOMOBILES 
5  NORTH   AND  EAST 

SOUTH  AND  WEST 

TRUCKS 


40 


SAN  BERNARDINO 


EL 


CENTRO 


APPENDIX  H 


DIAGRAMS  SHOWING 

CLASS  CONDITION  OF  CONCRETE 

PAVEMENT 

CALIFORNIA  STATE 
HIGHWAYS 

BY  ROUTES,  COUNTIES,  AND  SECTIONS 


LEGEND 

HORIZONTAL    SCALE:     1   UNIT  =  2   MILES 


CLASS  CONDITION  OF  PAVEMENTS 


SOIL  SYMBOLS 


ABOBE  AND  CLAYS 


Y//////////7J      LOAM 

SANDY  LOAM 
SAND 


LOCATION  5  NUMBERS  OF  CONCRETE  CORES 


n-i8 


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r 


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1 


o 
u_ 


C_3 


o 
o 

tf> 


H   z 
2^ 


-53 


w  ~Vv 

1 


OHIQHVM M3g  f  Kl V^ 


I  I 


P 


l 


1 


° 


>j 

o 


I 

Li 


B~ 


ex. 
O 

a 


CO 


vj 


*  ^J 
u    ^ 

s    ^ 


L 


1 1 
1 1 
1 1 


45 


,0) 


, 

.....  .JL 


o  < 

—  -tJ.J1 

CE:  i  S. 


<L> 


"0 


_L 


169 


a- 


5- 


E 
<u 
•o 

o    u 
2    n 


4- 


VJ 

<b 

V) 


o 

o 


•03  OQVHOQ 


PLATE    LXXXII. 


Si 


O 

o 


DC 

O 


/ 


t 

u 

c 

o 

o 


_L 


1    < 

=  5 

o    < 

or  </o 


75712—22 -12 


170 


PLATE    LXXXIII. 


i/V 


z: 
cr 
o 
u. 


o 
o 


c=> 
cc: 


<o 


<VJ 


07  o2dt(j  ueg  - 


171 


PLATE    LXXXIV. 


ADDITIONAL  COPIES 

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THE  SUPERINTENDENT  OF  DOCUMENTS 

GOVERNMENT  PRINTING  OFFICE 

WASHINGTON,  D.  C. 

AT 

30  CENTS  PER  COPY 
V 


• 


reed  circ.  MAR  1 4  1983 


UNIVERSITY  OF  CALIFORNIA  LIBRARY 


